Land Use Master Plan Port Hedland An

Port Hedland Land Use Master Planan

Port Hedland Land Use Master Plan

Prepared for The Town of Port Hedland Civic Centre, McGregor Street, Port Hedland, WA 6721 Ph: (08) 9158 9300 http://www.porthedland.wa.gov.au by Port Hedland Land Use Master Plan Steering Committee assisted by Urban Design Centre of Western Australia 469 Wellington Street Perth, GPO Box E219 Perth, WA 6841 Ph: (08) 9440 2400 http://www.udcwa.org Sustainable Consulting 3 Benjamin Way Rockingham PO Box 6135 Waikiki, WA 6169 Ph: (08) 9527 4549 http://www.sustainable.net.au EPCAD Consultants (Australia) P/L 30 Mayfair Street West Perth PO Box 1233 West Perth, WA 6872 Ph: (08) 9481 4410 http://www.epcad.com.au

November, 2007 Land Use Master Plan Steering Committee

Over the 14 month period of preparing the Land Use Master Plan, the Steer- ing Committee met monthly to guide the process and provide in-progress feedback to the consultant team. Some of the representatives of the organizations that made up the Committee changed over the course of the project. The following list includes all the participants who provided input as members of the Steering Committee at some point in the process. Port Hedland Council: Stan Martin (Chair), Mayor Grant Bussell Arnold Carter, Deputy Mayor George Daccache Shane Sear Port Hedland Administration: Chris Adams, CEO Port Hedland Port Authority: Andre Bush, CEO Wedgefield Association: Julie Arrowsmith Chris Drazic West End Action Group: Jan Ford Care for Hedland Environmental Association: Kelly Howlett Chris Whalley Port Hedland Chamber of Commerce: Tony Ford Morag Lowe Peter Oldenhuis Pilbara Native Title Service: Rainer Mathews Pilbara Development Commission: Trish Barron Lex McCulloch Department for Planning and Infrastructure: Ray Buchholz Phil Woodward Department of Industry and Resources: Ross Atkin Brian Wood Main Roads: Jim Mahoney Department of Sport and Recreation: Rod Jones Department of Housing and Works: Shayne Hills Joanne Gordon LandCorp: Mike Garner Shravan Kashyap BHP Billiton Iron Ore: Michael Buzzard Richard O’Connell Fortescue Metals Group: Ray Valentin Atlas Iron: David Flanagan Garry Plowright Dampier Salt: Graham Spalding John Taucher Mirvac: Darren Cooper Table of Contents

Executive Summary

1. Organization of the Project

1.1 Purpose ...... 1 1.2 Philosophy ...... 1 1.3 Scope ...... 3 1.4 Participants ...... 4

1.5 Process ...... 5

2. Policy Framework

2.1 Environment ...... 7 2.2 Heritage ...... 11 2.3 Infrastructure ...... 12 2.4 Industry ...... 13 2.5 Housing ...... 15 2.6 Commerce ...... 19 2.7 Public facilities ...... 21 2.8 Tourism ...... 23 2.9 Remote areas ...... 24

3. Land Use Recommendations

3.1 Infrastructure ...... 25 3.2 Industry ...... 36 3.3 South Hedland ...... 40 3.4 Wedgefield ...... 44 3.5 Redbank ...... 47 3.6 West End/Cemetery Beach ...... 49 3.7 Cooke Point ...... 61 3.8 Pretty Pool ...... 62

4. Implementation

4.1 Next steps...... 63

List of Figures

1. Town of Port Hedland boundaries ...... 2 2. Developed areas of Port Hedland ...... 3 3. 100-year flood plain and storm surge ...... 8 4. Indigenous heritage sites ...... 10 5. Key existing infrastructure components ...... 12 6. Existing industrial land use ...... 14 7. Existing residential development ...... 16 8. Existing commercial uses and activity nodes ...... 20 9. Existing public facilities ...... 22 10. Proposed Port development ...... 25 11. Proposed Port expansion and buffers ...... 26 12. Highway improvements: alternative A ...... 28 13. Highway improvements: alternative B ...... 28 14. Highway improvements: alternative C ...... 29 15. Railroad network ...... 31 16. Airport obstacle limitation surface contours ...... 32 17. Wastewater treatment system ...... 34 18. Proposed Industrial expansion areas ...... 37 19. South Hedland development sequence ...... 40 20. South Hedland spine road concept ...... 42 21. South Hedland Hamilton Road concept ...... 43 22. South Hedland Lawson Street concept ...... 43 23. Wedgefield buffer and expansion areas ...... 46 24. Redbank tourism concept ...... 48 25. West End/Cemetery Beach: existing land use ...... 49 26. Old Hospital site: town centre concept ...... 51 27. The Boulevard: Town Centre concept option 1 ...... 52 28. The Boulevard: Town centre concept option 2 ...... 53 29. The Boulevard: Town centre concept option 3 ...... 54 30. One of the several zoning options for West End/Cemetery Beach ...... 56 31. Cooke Point: existing land use ...... 60 32. Athol Street housing concept ...... 61 1. Project Organization

1.1 Purpose

Port Hedland is a difficult town to plan. Its physical layout is compromised by an extensive flood plain that limits development to scattered areas of high ground. Its economy is tied to the shifting fortunes of mining that produce cycles of growth and decline that are difficult to accommodate or even predict; and its social composition is characterised by a high proportion of recent residents, short-term workers and transient Aboriginal people, with diverse needs, expectations and degrees of commitment to the region. These kinds of conditions pose special challenges for planning − but they also make it all the more necessary. The mineral wealth of the Pilbara has brought growth and prosperity to Port Hedland. In capitalising on the economic opportunities of mining, however, development of the town as a desirable place to live has not always kept pace with its development as a primary link in Western Australia’s resources boom. Securing a sustainable future for Port Hedland depends on creating an attractive, stable community where the quality of life is as vital as the quality of its industrial infrastructure. Balancing these sometimes conflicting demands requires a clear, shared vision of the future of the town and a detailed plan for how to achieve it. The Land Use Master Plan will guide the growth and development of Port Hedland through the next 20 - 25 years. It focuses on the use of land and its development character, defining the community’s long-range vision of how the physical form of the town should develop. It sets out policies to resolve existing land use conflicts, guide the location and form of new development, and promote strategic new investment opportunities. The specific purposes of this plan are: • to develop broad agreement on the desired disposition and character of development throughout the Town; • to develop a tool to guide Council in making decisions on all development proposals; • to streamline the development approval process; and • to build confidence in Port Hedland and attract new investment through clarification of its development future. The Town of Port Hedland will use the Land Use Master Plan to inform the land use component of a new Town Planning Scheme. The Town Planning Scheme translates the policies and recommendations of the Land Use Master Plan into the statutory regulations that control the location and form of future development throughout the town.

1.2 Philosophy

At the outset of the project, the following planning values were established as the guiding philosophy of the plan: • The plan must be based on a shared long-term vision that is supported by the community, private investors and all levels of government. • The Plan is committed to sustainable patterns of development that build on local history and the unique characteristics of the local environment. • The Plan must provide a flexible development framework that recognises the constancy of change and the unpredictable nature of future needs.

1 Project Organization

• At the same time, the plan must provide an appropriate level of certainty to encourage long-term investment. • The Plan must build on existing strengths, previous planning processes and current development initiatives. • The Plan will draw on the wisdom of locals: Indigenous people, long-term residents and recent arrivals. • The Plan must take a long-term view, but at the same time, be action oriented and responsive to immediate problems and opportunities.

Turtle Bedout Island Island Larrey Point Poissonnier Point Cartaminia Point Little Spit Point Turtle Island Indian Ocean

De Grey Station PORT Finucane DE GREY HEDLAND HIGH Broome Oyster Island WAY to Cape Thouin Inlet GREAT NORTHERN- GOLDSWO RTHY HEDLAND RAILWAY

Turner Reef Is. Shaw FORESTIER De PIPPINGARRA STRELLEY Grey ISLANDS Mundabullangana River Ronsard Is. Station River River Sable Is. MARBLE Depuch Is. MUNDABULLANGANA BOODARIE BAR Peawah ROAD HIGHWAY AL WALLAREENYA

COAST Wallareenya Station GREAT WEST Indee Station Yule to Whim River NORTH Marble Bar Creek to Karratha NORTHERN INDEE

River SHIRE of ROEBOURNE HIGH TOWN W of A PORT HEDLAND Y

SHIRE of EAST PILBARA

PORT HEDLAND -

YANDEYARRA ABORIGINAL RESERVE

NEWMAN RAI

MUNGAROONA LWAY RANGE SHIRE of ASHBURTON NATURE RESERVE

0 5 10 15 20 25 Kilometres to Newman Figure 1 Town of Port Hedland boundaries

2 Project Organization

1.3 Scope

The boundaries of the Town of Port Hedland contain an area of approximately 18,700 square kilometres, extending from the coast to approximately 180 kilometres inland. This is an area of about four times the size of Metropolitan Perth, but it contains less than 1% of Perth’s population. The Land Use Master Plan covers the entire area of Port Hedland, but the focus of the plan is the area of settlement on the coast where over 98% of the Port Hedland community is located.

COOKE POINT FINUCANE ISLAND WEST CEMETERY END BEACH PRETTY POOL

REDBANK

WEDGEFIELD

Great Northern

Highway (Broome Road)

SOUTH HEDLAND 12-MILE Great Northern Highway

SOUTH HEDLAND RURAL ESTATE

Figure 2 Developed areas of Port Hedland

3 Project Organization

1.4 Participants

The planning process was directed by a Land Use Master Plan Steering Com- mittee, representing a wide range of stakeholders in the Port Hedland community and key government agencies responsible for land development of the Pilbara (see the list of Steering Committee members on the fly page of this report). The Mayor of Port Hedland chaired this Committee that reported directly to Council. To supplement the knowledge and experience represented in the Steering Committee, a series of Reference Groups were assembled to provide technical input on a range of specific topics. These included, for example, senior staff of the Depart- ment of the Environment and Conservation who advised the planning team on water supply, air quality and other environmental issues; Port Hedland real estate agents who provided information on local market trends; and Port Hedland Police Service Officers who offered insights relating to crime and anti-social behaviour. In addition to par- ticipating in the Reference Group meeting on their particular area of expertise, these specialists remained available to the planning team for further consultation as required throughout the process. Port Hedland residents had the opportunity to provide input to the process through a variety of techniques, including three Community Summits that were convened at critical points in the process. These summits were open public meetings to which the entire Port Hedland community was invited to review the progress of the work, provide feedback on evolving concepts and generate new ideas for inclusion in the process. In addition to these outreach efforts, special consultation processes were undertaken to solicit the views of young people, elderly residents and the Indigenous Community. For a comprehensive review of the public engagement process and tran- scripts of the input provided by the community, see the Land Use Master Plan Com- munity Participation Report. The consultant team commissioned to assist the Steering Committee develop the plan was made up of the Urban Design Centre of Western Australia (master planning and urban design), Sustainable Consulting (meeting facilitation) and EPCAD Pty Ltd (landscape design and environmental conservation). This team was supported throughout the process by the planning staff of the Town of Port Hedland who provided day-today advice to the consultant team, assisted in data collection and managed the logistics of Steering Committee meetings and the Community Summits.

Th e Hon. Tom Stephens, MLA, addressing a Community Summit

4 Project Organization

1.5 Process

Preparation of the Land Use Master Plan proceeded through a four-step process, beginning with the first meeting of the Steering Committee in April, 2006. Step 1 involved a series of Steering Committee meetings to define the process and identify the key development challenges to be addressed by the plan. These included: • achieving a shared and inclusive long-term vision of the future of Port Hedland; • developing in sustainable patterns that diversify and strengthen the local economy, enrich community life, and protect environmental resources; • resolving existing land use conflicts between residential and industrial uses, particularly in Wedgefield and the West End; • providing a wider range of more affordable housing choices; • overcoming the historical fragmentation of Port, South Hedland and Wedgefield and developing them to complement but not compete with each other; • creating a stronger sense of place and identity for Port Hedland that builds on local history and the unique environment of the region; • attracting tourism and other small business opportunities; • developing a richer cultural life and more diverse entertainment options that will encourage people of all ages and interests to make Port Hedland their home. Step 2 involved collecting data on these and other significant land use issues, and defining the options available to address them. This phase of the process was assisted by the input of the Reference Group specialists who provided detailed information and ideas in special topic meetings on land release, infrastructure, South Hedland, Wedgefield and Redbank, West End and Cemetery Beach, Cooke Point and Pretty Pool, the natural environment, public facilities, nodes and town centres, and tourism and other development opportunities. The results of these 10 Reference Group meetings were summarised in a series of widely distributed Discussion Papers outlining the key facts and opportunities relating to each topic.

Members of one of the Reference Groups at work

5 Project Organization

At this point, the first of the Community Summits was convened to review the information developed by the Reference Groups and provide an opportunity for residents to raise their concerns and offer additional development ideas. Prior to the summit, the Discussion Papers were circulated throughout the community to provide background information and a starting point for collective debate. Community feedback was recorded in notes taken on the discussions during the summit, and in written comments submitted by summit participants and residents who were not able to attend the meeting. A description of how the summit was conducted and a summary of its results were included in a follow-up Discussion Paper (No.12) that was distributed to the community. In Step 3, the results of the Community Summit were incorporated into evolving land use concepts, and issues about which significant disagreement remained were subject to further study. Alternative sketches were developed for the areas of major debate, including the location of new industrial areas, South Hedland, and the West End and Cemetery Beach. These sketches were presented for further discussion in a second Community Summit where many of the differences of opinion were resolved. Community Summit No. 2 followed a similar format to the first, and the collated feedback provided direction on the community’s preferences with respect to most of the outstanding issues. Step 4 —the final phase of the process— involved resolution of the remaining issues and production of final plan documents. The land use concepts developed in the previous steps were summarised in a Draft Land Use Master Plan that was reviewed by the Steering Committee and presented to Council for authorisation to release it for final public review. Copies of the Draft Plan were then distributed to Steering Committee members and to all relevant government agencies for review and comment. It was also made available to the community in hard copy on request at the Council offices, and in digital format on the Town’s web site. In addition, a poster-sized summary of the Draft Plan was distributed to every household and post office box in Port Hedland. Shortly after copies of the Draft were available, the Town of Port Hedland hosted a third Community Summit to clarify the contents of the Draft Plan, answer questions about any of its recommendations, and receive initial feedback. This explana- tory meeting preceeded a 10-week public review period that included a special public workshop hosted by the Chamber of Commerce to discuss alternatives for the West End. At the closing of the public comment period, submissions were reviewed by the Steering Committee and appropriate changes were incorporated in the Final Land Use Master Plan document.

6 2. Policy Framework

This section of the Land Use Master Plan outlines a policy framework for the more detailed planning of specific land uses and sub-areas described in Section 3. It establishes the attitudes adopted towards the natural environment and heritage, and sets out the overall principles applied to different types of land uses. These policies are derived from a general review of existing conditions, expected developments or growth trends, and the directions defined by the Steering Committee, with input from the Reference Groups and the community1. The Steering Committee acknowledges, however, that it is impossible to predict growth trends and development requirements 20 years or more into the future, and that a community’s attitudes and priorities will inevitability change over time. Rather than establishing a rigid structure of requirements that may constrain future development opportunities, these policies are offered as the current definition of a land use framework that has the following underlying (and enduring) purpose: To create an environment that nurtures growth in sustainable patterns, supporting development that embraces innovation and responds to unforeseen opportunities. This overall goal is based on the requirements of Clause 1.3(3) of the Local Government Act 1995 which states that ‘In carrying out its functions, a local government is to use its best endeavours to meet the needs of current and future generations through an integration of environmental protection, social advancement and economic prosperity.”

2.1 Environment

Port Hedland’s natural environment is one of its most distinctive and com- pelling features, including almost 300 kilometres of a coastline with mangroves, reefs, rocky outcrops and sandy beaches - separated from the mineral-rich hills of the interior by vast spinifex plains. It is a ruggedly beautiful landscape that is central to Port Hed- land’s identity and attracts thousands of tourists every year. But it is also a harsh and sometimes treacherous environment that suffers extreme heat for several months each year and is regularly threatened by tropical cyclones. The coast between Broome and Exmouth is said to be the most cyclone-prone coast in the world, averaging four cyclones a year between November and April. The growth of Port Hedland has always been conditioned by the potential for flooding and storm surges, producing the town’s existing pattern of segmented development (Figure 3). With growing evidence of global warming, the frequency and severity of storm events is likely to increase, elevating the threat of flooding as a determining factor in the location and form of future development. The natural environment of Port Hedland is also significant for its biodiversity and the number of rare and threatened species it supports2. The endangered flatback turtle, for example, nests on Port Hedland’s beaches and the mangroves along the coast and creek estuaries provide habitat for a wide range of marine and terrestrial animals. These fragile ecological resources are protected under the Environmental Protec- tion Act (1986), and local land use planning and development practices have important obligations to support conservation objectives.

1 Much of the information on existing conditions in Chapters 2 and 3 of this report is distilled from the text of the Discussion Papers developed during the course of the planning process. For further information on any of the land uses or sub-areas summarized here, see Appendix B.

2 Th e Pilbara was identiﬁ ed as one of Australia’s 15 biodiversity hotspots by the Th reatened Species Scientiﬁ c Committee of the Department of Environment and Heritage in 2003. 7 Policy Framework

The Town of Port Hedland falls within the Rangelands Natural Resource Management (NRM) region, which is one of six NRM regions within the State. The Rangelands NRM Coordinating Group prepared a management strategy for the Range- lands Region in 2005 with the general intent of promoting the sustainable use and management of natural resources. The strategy identifies approaches to the long-term management of identified natural resources, some of which are applicable to the Town of Port Hedland. Of particular relevance are targets and actions relating to coastal management plans to facilitate sustainable coastal development, protection of the quality of ground and surface water supply sources, management plans to reduce the environmental impacts of tourism, and off-reserve conservation and preservation of culturally sensitive areas. Resources for the implementation of the strategies and actions identified in the NRM strategy are delivered through an ongoing investment planning process, based on priorities and the availability of funding from the Federal Government. The Town of Port Hedland has an opportunity to address strategically the protection and management of native vegetation and the wider biodiversity of the region. The Western Australian Local Government Association (WALGA) has already

FINUCANE ISLAND COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD

Great Northern Highway

AIRPORT

(Broome Road)

BOODARIE INDUSTRIAL ESTATE

SOUTH HEDLAND

Great Northern Highway

SOUTH HEDLAND RURAL ESTATE

0 12km

Figure 3 100-year ﬂ ood plain and storm surge

8 Policy Framework

established a strategic framework for biodiversity protection in the Local Government Biodiversity Planning Guidelines, which are supported by the Environmental Protection Authority. These guidelines establish the process for identifying, protecting and managing natural areas, which the guidelines define as “an area that contains native species or communities in a relatively natural state and hence, supports biodiversity.” Natural areas can be areas of native vegetation or open water bodies (lakes and swamps), water- ways (rivers, streams and creeks - often referred to as channel wetlands or estuaries), springs, rock outcrops, bare ground (generally sand or mud), caves, coastal dunes or cliffs3. Natural areas exclude parkland, cleared areas, isolated trees in cleared settings, ovals and turfed areas. Extensive discussion of the constraints and opportunities of Port Hedland’s complex environment lead to recommendation of the following general policies: 2.1 (a) Direct growth to already developed areas wherever possible to minimize disturbance of the natural environment and contain the unnecessary spread of development across the landscape. 2.1 (b) Locate new development wherever possible above the 100- year storm surge elevation, allowing only uses that would incur limited flood damage, such as certain industrial or outdoor storage activities, within the flood plain. Climate change may require a higher elevation than currently accepted, and the Town’s flood mapping needs to be up- dated as soon as possible to accurately reflect current flooding risks. 2.1 (c) Minimise impacts on existing surface hydrology and mitigate flood damage to property and the environment through appropriate land use planning and the design of effective site drainage systems. 2.1 (d) Ensure future coastal setbacks and land use decisions comply with the requirements of State Planning Policy 2.6: State Coastal Planning Policy. 2.1 (e) Maximise opportunities for public access, recreation and conservation in coastal foreshore areas, and retain areas for people reliant on fishing and crabbing. 2.1 (f) Protect flatback turtle nesting areas and the habitat of other species of marine plants and animals, consistent with provisions of the 2004-2009 Port Hedland Coastal Management Plan and the Town of Port Hedland Strategic Plan, 2007-2012. These protection measures should take priority over any competing development proposals. 2.1 (g) Recognise the economic development role of industry and its inevitable environmental consequences, but plan for industrial growth in environmentally responsible patterns that minimise impacts on natural systems and contribute to the social advancement of the Port Hedland community. 2.1 (h) Ensure land use decisions uphold the principles of best practice in energy and water conservation, maintenance of air and water quality, and the preservation of biodiversity. 2.1 (i) Provide opportunities for public education and engagement with the environment to promote appreciation of its beauty and vulnerability.

3 Deﬁ nition adapted from Environmental Protection Authority, 2003.

9 Policy Framework

2.1 (j) Pursue the long term protection and management of natural areas through preparation of a local biodiversity strategy consistent with WALGA's Local Government Biodiversity Planning Guidelines. Obviously, there are many more environmental principles that apply to development in Port Hedland, for example, the orientation of streets to maximise opportunities for passive solar design and exposure to prevailing breezes, possible forestation programs for vacant or underutilised land and extensive tree planting to provide shade in streets and car parks. These kinds of requirements, however, are issues for detailed design and fall outside the scope of this plan.

FINUCANE ISLAND COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD

Great Northern Highway

AIRPORT

(Broome Road)

BOODARIE INDUSTRIAL ESTATE

SOUTH HEDLAND

Great Northern Highway

SOUTH HEDLAND RURAL ESTATE

012km

Figure 4 Indigenous heritage sites

10 Policy Framework

2.2 Heritage

Heritage places are social, environmental and economic assets that play an important role in defining a community’s character and attracting tourism. They help us to understand the events and people that shaped the present, and through their preservation, demonstrate how we value the past. The Port Hedland Municipal In- ventory lists the key heritage assets that have been identified as places valued by the community. Archaeological evidence indicates that humans have occupied the Pilbara for over 40,000 years. With its plentiful supplies of fish and land-side foods, the Port Hed- land area would have played an important part in prehistoric occupation and remains a place of significance to Indigenous people today. Almost all of the Town of Port Hedland is under Native Title claims and numerous heritage sites have been identified in and around the developed landscape (Figure 4). European settlement has a history of only about 150 years, dating from the first pastoral leases established on the De Grey River in the 1860s. For the following 100 years, the tiny town of Port Hedland served as the supply centre for the sheep and cattle stations of the region, and for a variety of other initiatives, including a short-lived pearling industry and prospecting at Marble Bar. Most of the remnants of this early history are concentrated in the West End, which was virtually the extent of the town until the 1960s. Mining has only been the dominant industry of the region for less than 50 years, but it has had such a powerful influence on the size and character of Port Hed- land that the identity of the town today is inextricably linked to iron ore. Despite the wealth of heritage material in the area, many of Port Hedland’s residents and visitors are unaware of its life before iron ore – either the thousands of years of indigenous occupation or the more recent European history. To guard against the continuing erosion of the area’s heritage, the following policies are recommended with respect to future land use decisions: 2.2 (a) Minimise the disturbance of sites significant to Aboriginal people and the remnants of early Non-Indigenous occupation. 2.2 (b) Maintain evidence of the early patterns of development and incorporate wherever possible references to former street layouts, land uses and building forms in new development areas. 2.2 (c) Provide opportunities to learn about the Indigenous heritage of the area and its early Non-Indigenous settlement, and celebrate significant events and personalities of the past. 2.2 (d) Protect heritage places through provisions of the Town Planning Scheme and through other positive measures such as Council asset management strategies and incentives for private conservation. Port Hedland’s award winning Cultural and Heritage Trail showcases the rich and colourful history of the West End.

11 Policy Framework

2.3 Infrastructure

The quality and efficiency of transportation, power, water supply and communications infrastructure is critical to Port Hedland’s sustainability as the Pilbara’s major port, as well as to the development of a satisfactory quality of life for its residents. The need for new or improved facilities and services will depend on the rate and scale of population growth and industrial expansion. Apart from several necessary highway improvements, the existing infrastructure of Port Hedland is adequate to

FINUCANE ISLAND COOKE POINT

Telstra CEMETERY tower WEST END BEACH Spinifex Hill Wastewater Treatment Plant PRETTY POOL

Port boundary

REDBANK

Dampier Salt

Port boundary Tox-free Incinerator WEDGEFIELD

Great Northern Highway

Services AIRPORT Corridors Port Hedland - Goldsworthy railroad (Broome Road)

BOODARIE INDUSTRIAL ESTATE

SOUTH HEDLAND

r e South Hedland f f u Wastewater Treatment

b FMG railroad (under

t Plant

a l Power

r Plant

e w

o BUFFERS P Power plant

construction)

Port Hedland - Newman railroad Wastewater treatment plants Tox-free incinerator SOUTH HEDLAND RURAL ESTATE

Great Northern Highway 0 12km

Figure 5 Key existing infrastructure components

12 Policy Framework

service projected growth in the short term. In the longer term, significant investment in new road and rail corridors is expected and these improvements must be carefully planned —not only to maximise the efficiency of the transportation system, but also to create opportunities for new development and minimize the potential for negative impacts on existing development and the natural environment. In addition, the current location of certain facilities, such as the Spinifex Hill wastewater treatment plant and the adjacent communications tower, is impeding the expansion of competing land uses and their relocation needs to be considered in relation to other land use objectives. Infrastructure projects usually represent major expenditures and the results typically remain in place for a long time. To avoid the potential for costly mistakes and maximise the return on investment, the following general policies are recommended: 2.3 (a) Provide for the orderly expansion of services by clustering new development with existing facilities where possible, in defined transport and utility corridors that minimise environmental and land use impacts. 2.3 (b) Locate high impact facilities, such as wastewater treatment plants, in areas removed from sensitive land uses and where possible, with other uses that can share required buffers. 2.3 (c) Locate facilities to promote new development in appropriate areas. 2.3 (d) Plan for the long term, with adequate capacity to accommodate projected growth and the ability to incorporate possible advances in technology.

2.4 Industry

Industry is the largest land use in Port Hedland, accounting for over 3,150 hectares, or approximately 58% of all the developed land in the Town (Figure 6). BHP Billiton’s operations at Nelson Point and Finucane Island, and Dampier Salt’s evaporation ponds that extend from Wilson Street past 12-mile Creek account for the bulk of this area. The remainder is made up of the developed sections of port land, Wedge- field, the area between Wilson and Anderson Streets west of Short Street, and scattered sites on Bell Road and further east along Great Northern Highway. In addition, the Boodarie Industrial Estate reserves some 4,000 hectares of land south west of town for “strategic industry,” specifically downstream processing operations capitalising on the mineral resources of the region. The only development of this estate is the town’s power plant. BHP Billiton’s partly decommissioned HBI (hot briquetted iron) plant is located on an adjacent but separate parcel of land, immediately north of the Boodarie Estate. Despite the vast area currently devoted to industrial use, there is a critical shortage of land available for industrial expansion. Wedgefield is currently the town’s main dedicated industrial precinct, but its capacity to satisfy the present demand is severely limited. Because of the density of caretakers’ dwellings and more permanent homes that has evolved in the area, the addition of further high impact industrial uses would only exacerbate existing land use conflicts. Furthermore, Wedgefield is almost fully utilised with only a small section on Manganese Street still to be developed, offering lots of approximately 1 hectare in size.

13 Policy Framework

The immediate demand is for mid-sized lots of 5 hectares or more. The current shortage of such sites is promoting the spread of industrial uses along the Great Northern Highway, east of the airport, on land currently zoned “Rural” or reserved for “Other Purposes – Infrastructure.” It was generally agreed by the Steering Commit- tee and community participants that this trend should be halted to avoid the scattering of development in unplanned patterns with associated negative impacts on the visual character of Port Hedland’s eastern entry. Lengthy discussion of alternative options led to the following general policies on industrial land use:

FINUCANE ISLAND COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD

Great Northern Highway

AIRPORT

(Broome Road)

BOODARIE INDUSTRIAL ESTATE

SOUTH HEDLAND

Great Northern Highway Light industry Heavy industry SOUTH HEDLAND RURAL ESTATE Utilities

0 12km

Figure 6 Existing industrial land use

14 Policy Framework

2.4 (a) Contain the spread of industrial uses in well planned, orderly precincts that are located to take advantage of existing infrastructure wherever possible, to support existing industrial development, and to avoid conflicts with adjacent land uses. 2.4 (b) Identify appropriate locations for different types of industrial uses, promoting synergies among related businesses and avoiding conflicts between noxious and light industrial uses. 2.4 (c) Establish high standards of design and construction quality and landscape development to protect the "view from the road" on Great Northern Highway and the entries to South Hedland, Wedgefield and the Port area.

2.5 Housing

Housing in Port Hedland is expensive and generally in short supply. Because it is subject to the economic cycles of the mining industry, Port Hedland has had difficulty developing and maintaining an adequate supply of quality housing due to constantly shifting demand. In addition to the challenges of an unpredictable market, appropriately zoned coastal land is in relatively short supply, while South Hedland, with its more abundant land supply, suffers from a reputation dominated by negative perceptions of increasing crime, poverty and social dysfunction. This contributes to high housing costs and an extremely tight market, frequently low standards of quality and maintenance, and limited choice in types of available accommodation. The situation is further impacted by housing subsidies that the large mining companies are willing to offer their employees, and the sub-standard conditions that some workers are willing to accept on a temporary basis while they hold lucrative jobs in the mining industry. While the provision of rent-subsidised accommodation drives the refurbishment and construction of new units, both of these influences on the housing market contribute to inflation and volatility in housing costs that have significant impacts on the rest of the community. With an unacceptable proportion of lower-standard housing and rapidly increasing sale prices and rents, it is difficult to attract middle-income employees to Port Hedland. This in turn leads to a deterioration of services, which further reduces the appeal of Port Hedland as a place to live, thus stimulating a high turn-over in the population of the town and exacerbating the instabil- Typical residential street ity of the housing market. in South Hedland Port Hedland’s existing housing stock is concentrated in South Hedland which contains approximately 70% of the total number of residential properties in the town (Figure 7). The remainder are distributed through the neighbourhoods on the coast, including West End/Cemetery Beach (17%), Cooke Point (11%) and Pretty Pool (2%)4. On terms of unit type, three and four bedroom detached houses account for over 75% of the existing housing stock5. At the upper end of the market, the issue is the limited availability of units in the desirable areas of Pretty Pool, Cooke Point, Cemetery Beach and the West End.

4 Town of Port Hedland Property Register. Th is estimate refers to the number of residential lots, not the number of housing units, and does not include residences in Wedgeﬁ eld or the ﬁ ve residential properties in Redbank.

5 Australian Bureau of Statistics, Expanded Community Proﬁ le Port Hedland (T) (LGA 57280), Recent housing construction by Catalogue No. 2005.0, Table X49. BHP Billiton in Cooke Point

15 Policy Framework

COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD

Great Northern Highway

AIRPORT

(Broome Road)

Great Northern Highway

SOUTH HEDLAND

Detached housing Grouped dwellings Short-stay accommodation

012km

Figure 7 Existing residential development

16 Policy Framework

This is primarily due to the scarcity of elevated land along the coast. Apart from the last remaining section of developable land in Pretty Pool currently being developed by LandCorp, there are no immediately available sites for projects of scale on the coast. In addition to identifying opportunities to provide more dwellings in these preferred areas, the Land Use Master Plan should seek to achieve a more balanced socio-economic mix throughout the town by simultaneously encouraging the development of more attractive neighbourhoods in South Hedland, with quality housing choices that will lure a proportion of upper end buyers away from the coast. At the lower end of the market, the limited range of housing types, quality and affordability are significant issues. Through the New Living Program, the Department of Housing and Works is addressing these issues in South Hedland through an ambi- tious program of renovation, redevelopment and the release of further land. The Land Use Master Plan supports this important initiative, along with additional opportunities to improve housing choice and affordability throughout the town. These objectives are embodied in the following overall housing policies:

2.5 (a) Secure appropriate residential zoning for all suitable new housing sites within or adjacent to existing developed areas, promoting a balance of growth in all parts of the town. 2.5 (b) Expedite the release of currently encumbered sites for additional housing development, including clearance of Native Title on all land zoned for development in South Hedland. 2.5 (c) Support the relocation of existing uses that do not represent the highest and best use of a potential residential site, or otherwise inhibit the development of new housing. 2.5 (d) Increase the density of residential development in areas with appropriate access, services and amenity, and support the improvement or provision of infrastructure where necessary to promote increased residential densities (for example, providing sewer connection to the Cemetery Beach area). 2.5 (e) Encourage a wider range of housing types by identifying suitable areas for specific types of units, including single bedroom units, and home office or other combinations of live/work arrangements.

Transient workforce

The most difficult segment of the population to house satisfactorily is the transient workforce of short-term contract employees and construction crews who may be in Port Hedland for only a few months. Typically, these transient workers live in dongas in established camps in Wedgefield, South Hedland (Pundulmurra) and adjacent to the airport. Their experience in Port Hedland, however, would be significantly improved with easy access to retail and food services, sporting and entertainment opportunities, education facilities, libraries, health services and so on. Rather than banishing the transient workforce to quarters on remote sites, the Land Use Master Plan proposes more formalised housing for these workers in the town centres of South Hedland and the West End, where they can access a range of service and entertainment facilities, and at the same time, support the commercial viability of these activities and add life to the urban areas, especially at night. Developing Landscaping in South Hedland adds lofts and one bedroom rental units, suitable for single occupants or young couples in the colour and shade to the streetscape

17 Policy Framework

unique environment of the town centres, will also expand the range of housing choices available in Port Hedland. 2.5 (f) Provide opportunities for transient workforce accommodation in or near the town centres of South Hedland and the West End, in appropriate, low maintenance unit types that meet the needs of transient shift workers.

Transient accommodation for Indigenous visitors The New Living Program in South Hedland will improve housing standards for many of the Indigenous people who make up about 20% of the population. Prob- lems of occasional overcrowding and homelessness, however, are expected to continue because of the Indigenous visitors who are unable or unwilling to access formal accommodation options during their stay in South Hedland. From consultation with local Indigenous people and visitors (see Appendix A), there was general consensus on the need for an appropriately managed, short-term residential facility for visiting Indigenous people and their families. This facility was described as a camping ground with shade, toilets and showers, cooking facilities, tables and seating, a grassed area with trees and a playground for the children. In addition, participants indicated a need for a day-to-day meeting place for Indigenous people. Several possible locations for these functions were debated, including the existing 12- Mile Community (Tjulku Wara), at the back of Kalarra House on Forrest Circle, and near South Creek. It was suggested that priority should be given to an area on South Creek for the casual meeting place, and the area behind Kalarra House and the new hospital for a more formal camping facility. Further consultation will be required to reach final agreement on appropriate sites and design details. 2.5 (g) Reserve land for a transient accommodation facility for Indigenous visitors, in a location to be determined in consultation with the Kariyarra Working Party and local Aboriginal people.

Rural Estates The South Hedland Rural Estate and similar developments at 12-Mile (the Horse Blocks) and Turner River provide clusters of rural residential lots of 1 - 2 hectares for people who choose to live in a rural setting, with the possibility of operating a small business in agriculture, animal care or similar rural enterprise. All of the available lots in the existing estates have been taken up, although not all developed, and there is evidence of further demand for lots of this type. To minimise the need for additional infrastructure and contain the unnecessary spread of development into undisturbed areas, the Land Use Master Plan does not rec- ommend establishing any new locations for this type of development and supports only modest expansion of the existing estates, as indicated by market demand. To discourage purely speculative investment, a schedule of minimum development requirements could be imposed on future land sales. 2.5 (h) Expand the existing South Hedland and Turner River rural estates, as warranted by demand and subject to land capability, with design standards to ensure appropriate types and quality of development.

18 Policy Framework

2.6 Commerce

Commercial uses, including retail, office and general service and entertainment functions, make up only a very small proportion of the total developed area of Port Hedland, but play an important part in creating community activity places and encouraging social interaction. There are currently three concentrations of commercial uses, or activity nodes, in Port Hedland: the original town centre in the West End (Figure 8), The Boul- evard plaza at Wilson and McGregor Streets, and the South Hedland Town Centre which is the major shopping area of the Town. Given its location in the shadow of Nelson Point and Finucane Island, the future of the West End was a key issue for this planning process which explored various alternatives, including options for moving the town centre to a new location, and the implications of such a decision on The Boul- evard (see 3.6: West End/Cemetery Beach in the following section of this report). For South Hedland, the key issue is how to create a more attractive, vibrant town centre that will improve the image and amenity of South Hedland as a place to live. Extensive debate amongst members of the Steering Committee and the community lead to the following overall policies on the development of commercial land uses: 2.6 (a) Build on existing commercial strengths, reinforcing the existing town centres in their present locations. 2.6 (b) Encourage higher densities of development and a richer mix of land uses in commercial centres, balancing retail and office uses with a range of cultural, entertainment and residential uses to increase the level of activity throughout the day and at night. 2.6 (c) Focus each town centre on a quality public open space, such as a plaza or special street, which is designed for a variety of occasional events such as flea markets, community parades and festivals. 2.6 (d) Promote uses and activities that allow the commercial centres to complement, rather than compete with, each other, producing a variety of places to go in Port Hedland that offer a range of different activities, different kinds of experiences, and opportunities to interact with different groups of people.

Port Hedland’s main retail centre in South Hedland

19 Policy Framework

COOKE POINT

CEMETERY WEST END BEACH

The Boulevard

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD

Great Northern Highway

AIRPORT

(Broome Road)

Great Northern Highway

SOUTH HEDLAND

Retail Office Commercial services

0 12km

Figure 8 Existing commercial uses and activity nodes

20 Policy Framework

In addition to reinforcing the main commercial areas, there was much discussion about the benefits of small shops and commercial services scattered throughout residential areas. While the idea of the “corner store” is very appealing and they add considerable convenience to a neighbourhood, their feasibility is usually marginal in densities like Port Hedland’s – as evident, for example, in the decline of the small node of mixed uses on Keesing Street in Cooke Point. But despite the current misfortunes of Keesing Street, some level of second-order convenience retail development would seem appropriate, given Port Hedland’s extended geography and the unusual distances from certain areas to any of the three larger commercial centres. These would be small neighbourhood centres of two or three local businesses, such as a small grocery store, newsagent, café or specialty restaurant, ideally located near a library or recreation facility, on a relatively busy street or intersection. 2.6 (e) Designate appropriate locations for small clusters of convenience retail and neighbourhood services in residential areas that are more than a reasonable walking distance (1 - 2 kilometres) from commercial centres. To support these convenience retailers and other kinds of small businesses and professional services, the Land Use Master Plan should encourage home businesses in Verandah of the existing shopping centre at Th e Boulevard appropriate locations. Because real estate costs are so high in Port Hedland, it is often difficult for small business owners to maintain business premises as well as a home. This makes live/work units an ideal addition to the range of housing types available in the town, but they need to be clustered in confined areas where they can achieve a level of visibility, develop mutually supportive synergies, and reinforce neighbourhood centres or the larger commercial nodes. 2.6 (f) Identify suitable areas for home based businesses, with appropriate visibility and access.

2.7 Public facilities

Port Hedland is very well supplied with public facilities and open space for a community of its size (Figure 9), largely due to the town’s scattered development pattern which has led to significant duplication. While necessary to provide all neighbourhoods with reasonable access to amenities, the duplication of facilities is inefficient, stretching available resources and limiting the range and quality of services possible in each location. A summary of existing public facilities in Port Hedland is available in Discussion Paper No. 9, including the recommendations of various studies for possible improve- Community playground ments and the realignment of services and facilities. The following general policies are in South Hedland distilled from that review and feedback provided by the Steering Committee and community participants: 2.7 (a) Maintain high standards of public facilities and community service, focusing on quality rather than quantity. 2.7 (b) Consolidate facilities where possible to achieve operational efficiencies and expand collaboration between municipal and state government departments. 2.7 (c) Relocate public facilities, where possible, to release sites which could be effectively redeveloped in support of other land use objectives Leap Park in the West End

21 Policy Framework

COOKE POINT

CEMETERY WEST END BEACH

Racecourse

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD Cemetery

Great Northern Highway

AIRPORT

(Broome Road)

Golfcourse

Race track

Great Northern Highway

SOUTH HEDLAND

Education facilities Community services Public facilities Public open space and recreation

012km

Figure 9 Existing public facilities

22 Policy Framework

and where the capital costs of relocation can be recouped from land sales or other development revenues. 2.7 (d) Ensure public access to foreshore areas and expand coastal recreation opportunities.

2.8 Tourism

The Pilbara attracts over 300,000 tourists a year, but only about a third of them visit Port Hedland6. The main reason for the town’s poor “capture rate” is the limited availability, high cost and generally poor quality of tourist accommodation. While never large, the inventory of short-stay accommodation has been significantly reduced over the past year with closure of the two backpackers’ hostels and the Esplanade Hotel in downtown, and the conversion of a caravan park in South Hed- land to workers’ accommodation. In addition, the current housing shortage is making it very difficult to secure a room in any of the remaining facilities because of extended stay arrangements and standing business reservations. Addressing the critical shortage in tourist accommodation options is an immediate priority. There is significant demand for all types of accommodation, from four or five-star quality rooms which are not currently available anywhere in Port Hedland, to caravan parks and camp grounds. Apart from the accommodation shortage, tourism in Port Hedland also suffers from a distinct lack of organised attractions and interesting visitor experiences. There has been a significant decline in the number of packaged tours available and several services have recently been eliminated, including fishing and diving charters and tours to Karijini National Park. The only guided tours currently available are a bus tour of BHP Billiton’s Nelson Point plant, and the Walk Hedland’s History tour which uses the award winning Cultural & Heritage Trail walk to showcase Port Hedland’s rich and colourful past. Port Hedland and its environs, however, offer a wealth of potential tourism opportunities, including eco-education tours and environmental conservation camping experiences, Indigenous culture and heritage tours, and sports and outdoor recreation activities. Discussion of the options in the Community Summits and conversations with local Aboriginal people suggested the following general policies on tourism development: 2.8 (a) Identify sites for new tourist accommodation facilities, with the focus on quality hotel development and expanded caravan and camping facilities, including expansion of the Cooke Point and Black Rock caravan parks. 2.8 (b) Encourage the development of unique accommodation options such as a luxury nature resort or fixed tent adventure camp. 2.8 (c) Limit the number of permanent residential units included in tourist developments. 2.8 (d) Provide opportunities to access and learn about the complex ecology of Port Hedland’s coastal environment and the stark interface between nature and industry.

6 Tourism Western Australia: Town of Port Hedland Tourism Fact Sheet, 2005 and Pilbara Tourism Fact Sheet, 2005.

23 Policy Framework

2.8 (e) Engage Aboriginal people in developing programs and activities that highlight the Indigenous heritage of the area and educate visitors about Aboriginal culture, bush knowledge and survival techniques. 2.8 (f) Revive sport fishing and boating opportunities and open up access to remote areas of the coast for eco-tours and fishing camps.

2.9 Remote areas

Although the Land Use Master Plan focuses on the area of settlement around the harbour and its five rivers, the developed areas of Port Hedland represent less than half of 1 percent of the total area of the town. The remainder is comprised of six pastoral leases, the Yandeyarra Aboriginal Reserve and the Mungaroona Range Nature Reserve. Only about 1.5% of the town’s population lives beyond the settled area in small, and sometimes temporary communities7. The lack of development in the hin- terland has limited the need for sealed roads and as a result, areas of natural and cultural heritage are often difficult to find and not easily accessible to either locals or visitors. Although relatively insignificant in comparison to the economic might of mining, the pastoral industry remains an important component of the area’s heritage. A number of stations are attempting to diversify their economic base by providing tourist accommodation, caravan rest stops and station-stay packages which offer opportunities to learn about pastoral life in the Pilbara. The majority of the Port Hedland coast is controlled by the Mundabullagana, Boodarie, Pippingarra and De Grey pastoral leases. Public access across pastoral land to the coast for fishing and recreational activities has been a source of conflict with pastoralists due to public negligence and incidences of property damage. 2.9 (a) Expand the range of tourism experiences by providing easier access to selected remote sites whilst respecting the Indigenous and natural heritage of remote areas. 2.9 (b) Support the pastoral industry as a valued sector of Port Hedland's economy. 2.9 (c) Through consultation with pastoralists, relevant government agencies, Indigenous people and other interest groups, work to establish formal access points through pastoral land to selected coastal areas to reduce conflicts with pastoral activities and protect the natural vegetation and land forms from soil erosion.

7 Australian Bureau of Statistics: Port Hedland: National Regional Proﬁ le 2004.

24 3. Land Use Recommendations

This chapter details the specific recommendations of the Land Use Master Plan, based on the overall land use policies outlined in the previous section. It begins with recommendations for infrastructure and industry which impact land between the sub-areas of existing development, followed by a summary of proposals for the development sub-areas themselves: South Hedland, Wedgefield, Redbank, West End/ Cemetery Beach, Cooke Point and Pretty Pool.

3.1 Infrastructure

This section considers the location of transportation system elements, water supply and wastewater management facilities, power supply lines and communication towers.

3.1.1 Transportation

The Port From its origins as the supply line of the pastoral industry, the port has always been at the centre of Port Hedland’s economy. It is currently the second largest port by tonnage in Australia, with an annual throughput of approximately 110 million tonnes. The volume of material passing through the Port is likely to double in the next three years, and possibly triple in the next five, requiring new berths and land side improvements to accommodate the projected growth.

Future reclamation area WEDGEFIELD Proposed/existing corridors Existing BHPB land New dredging Reproduced from: Existing basin Presently populated area Worley Pty Ltd: Port Planning Study, Ultimate 0 2000 Development Plan, 2007 SOUTH HEDLAND metres Figure 10 Proposed Port development

25 Land Use Recommendations

To secure the export capacity of the Pilbara in the long term, the State government has floated the idea of a new port at Ronsard, approximately 80 kilometres southwest of Port Hedland. As an alternative that would consolidate future growth in Port Hedland and eliminate the need for duplication of land-side infrastructure, the Port Hedland Port Authority is investigating opportunities for the development of an outer harbour off Finucane Island. This concept is only speculative at this time and extensive evaluation of factors such as environmental impacts, impacts on existing infrastructure and susceptibility to storm damage need to be undertaken before deciding to proceed with more detailed planning. In the meantime, construction is well advanced on the new port facilities for Fortescue Metals Group Limited (FMG) at Anderson Point. Long range plans focus on development of the western side of the harbour, with efficient road and rail connections to the Boodarie Industrial Estate. An immediate priority is a new multi-user berth at Utah Point that will allow relocation of manganese and chromite stockpiles from the town side of the harbour, as well as accommodating the requirements of the iron ore juniors. If approval and funding is secured, this new public berth could be operational by mid-2009. Development of the west side of the harbour will require improved road and rail connections to the new berths and significant expansion of land-side activities. In

FINUCANE ISLAND COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

Port boundary

REDBANK

Dampier Salt

Rail corridor WEDGEFIELD

Proposed Port expansion Off-site Port buffer Service On-site Port buffer corridors BOODARIE BHP Billiton lease INDUSTRIAL ESTATE 012km

Figure 11 Proposed Port expansion and buﬀ ers

26 Land Use Recommendations

addition, there will be important changes to the uses of Port land on the town side of the harbour when the proposed public berth at Utah Point is operational. To ensure Port development proceeds with appropriate regard to existing development and land use objectives for adjacent areas, the following actions are recommended: Support expansion of Port facilities on the west side of the harbour. Expand the Port boundary to include the triangle of land west of Wedgefield, north of the rail line (Figure 11). In line with the State Industrial Buffer Policy, define off-site buffers of a minimum of 500 metres in width along all sections of the Port boundary that do not contact existing development. In the area adjacent to Wedgefield, maintain an on-site buffer of 500 metres, within which only low impact industrial uses may be located. Work with the Port to determine appropriate new uses, including container and general cargo trade, on the town side of the harbour to replace the uses that are relocated to the west side. Because of the narrow configuration of Port land on the town side of the harbour, an on-site buffer, as for Wedgefield, is not a viable approach to controlling potential land use conflicts in this section. Similarly, work with the Port to determine acceptable light industrial uses for Port Authority land adjacent to existing development in Redbank. Potential uses include aquaculture, a biofuel facility or lay down area. South East Creek has also been suggested as a suitable location for a nature trail through the mangroves, as described in Section 3.5 below. In addition to its core industrial function, the Port plays an important role in tourism, providing unique opportunities to watch tugboats manoeuvring some of the largest ships in the world, to view the ore loading process, and learn about the history of the Port and its part in the development of the town and the region. Throughout this planning process, the Port has shown a positive interest in the general welfare of the town and has floated several excellent ideas for public viewing, interpretation and arts facilities, any of which would make a significant contribution to strengthening the tourist experience of Port Hedland. Support the development of tourist facilities on Port land abutting Marapikurrinya Park in the downtown area, and assist where possible Ore carrier at berth at Nelson Point with State approvals and funding applications.

Finucane Island and Nelson Point, with West Creek in the foreground and Stingray Creek on the right

27 Land Use Recommendations

Highway Network Road access to Port Hedland is via the Great Northern Highway which is part of the Auslink National Network linking Perth to Darwin. It takes a circuitous route between Wedgefield and South Hedland and around the airport, including three T- intersections which are hazardous to local traffic and the long-haul road trains that make up much of the through traffic. Main Roads WA has secured initial funding for planning work only on improvements to this section of the Great Northern Highway, including the investigation of short-term solutions to immediate safety problems. Three conceptual alternatives have been identified, with implications for access improvements to expanded Port activity on the western side of the harbour: Alternative A maintains the exist- REDBANK ing alignment of Great Northern Highway but proposes improvements to the three

PORT HEDLAND intersections, including grade separation of Dampier Salt PORT AUTHORITY the intersections with Wallwork Road and Wilson Street. Access to the Port is via a Port boundary new road intersecting with the highway about midway between the Goldsworthy WEDGEFIELD rail line and Pinga Street. This is the most Great Northern Highway cost effective alternative and the easiest to AIRPORT

Port Hedland - Goldsworthy railroad implement in a reasonable time frame. It (Broome Road) may not, however, be a satisfactory solution to the long term demands of the road network.

Great Northern Highway SOUTH HEDLAND New Port access road

FMG railroad Grade separated intersection

0 12km

Port Hedland - Newman railroad Figure 12 Highway improvements: Alternative A

Alternative B proposes exten- REDBANK sion of the Broome road to the north, then Port boundary turning south to connect to Moorambine PORT HEDLAND Street through Wedgefield, and reconnect- Dampier Salt PORT AUTHORITY ing to the Great Northern Highway south of the Goldsworthy rail line. It has also been suggested that this new road could be constructed on an elevated causeway to pro- WEDGEFIELD vide flood protection to Wedgefield, South Great Northern Highway Hedland and surrounding areas. This is an AIRPORT

Port Hedland - Goldsworthy railroad expensive alternative, but providing better (Broome Road) highway access and flood protection to the area east of Wedgefield supports its development as a General Industry area (see Section 3.2 below). Great Northern Highway SOUTH HEDLAND New Port access road

FMG railroad Grade separated intersection

0 12km

Port Hedland - Newman railroad Figure 13 Highway improvements: Alternative B

28 Land Use Recommendations

Alternative C involves cutting off the detour around the airport with a new REDBANK connection running along the Goldsworthy

PORT HEDLAND rail alignment. This alternative provides the Dampier Salt most direct routes for through traffic and for PORT AUTHORITY vehicles accessing the west side of the Port. Port boundary It also provides highway access to the large area of land south of the airport that would WEDGEFIELD therefore be ideally suited to development as a transportation hub, or concentration of AIRPORT transport related businesses and services. It may also require, however, a bridge cross- Port Hedland - Goldsworthy rail Broome Road ing on Wallwork Street into South Hedland, and a grade separated interchange at the point of reconnection with the existing high- Great Northern Highway SOUTH HEDLAND way, complicated by the proximity of the New Port access road

FMG railroad Grade separated rail line. It may also require shifting the main intersection runway several hundred metres to the north 0 12km to maintain the necessary clearances. These Port Hedland - Newman railroad requirements make it the most expensive of Figure 14 Highway improvements: Alternative C the three alternatives and the least likely to be implemented in the near term. Main Roads WA has initiated the traffic and engineering studies required to select a preferred option and this process may lead to the identification of additional alternatives. The schedule for completion of these analyses is unknown at this time. In the meantime, the Land Use Master Plan is proceeding on the basis of the following argument: Although Alternative C ultimately produces the most direct route to the Port from the north and east, the likelihood of its implementation is tenuous, and the immediate need for safety improvements to the Great Northern Highway intersections makes Alternative A a more attractive near term option. A bridge over the rail line into South Hedland, however, has been discussed for some time as necessary to avoid the occasional long delays caused by the present at-grade railway crossing. An effective compromise, therefore, could be to proceed with the highway improvements of Alter- native A, as well as a bridge on Wallwork Road, which could be designed to allow the connection of Alternative C to be implemented at a later date. An additional benefit of pursuing the Wallwork Road bridge in the near term is that its construction requirements present some interesting possibilities for improvement of the entry to South Hedland and configuration of the internal road network. To maintain access through the construction period, a bridge over the railway will have to be built in a different location from the current crossing. This means that a new entry to South Hedland could be developed on Hamilton Road, or on the alignment of one of the existing streets, such as Parker or Stanley Streets, avoiding the problematic roundabout and proposed “spine road” through the centre of the town (see 3.3 South Hedland below). Support grade separation of the Wallwork Road and Wilson Street intersections with Great Northern Highway, to proceed as soon as possible. Lobby for construction of a bridge over the Goldsworthy rail line at Wallwork Road into South Hedland, possibly designed to allow future

29 Land Use Recommendations

construction of a new segment of Great Northern Highway parallel to the rail corridor. The other major change in the highway network that is likely within the fore- seeable future is duplication of Wilson Street. Currently, the only route in and out of Nelson Point from Great Northern Highway is via the Redbank Bridge and Wilson Street. The bridge currently has only a single lane in each direction and typically carries over 10,000 vehicles per day, including road trains. Concerns over road safety, combined with the significant wear of such heavy industrial traffic, has strengthened calls for duplication of the bridge and Wilson Street to separate light traffic into the West End from industrial traffic headed to the Port and adjacent industrial zone. This improvement will open up opportunities for creating a more attractive entry to the West End for non-industrial traffic. Options discussed by the Steering Committee included directing light traffic onto Anderson Street as the main route into the downtown area, or with possible relocation of the racecourse, directing traffic along the shore on Sutherland Street, providing dramatic views of the coast and ships at anchor (see 3.5 West End/Cemetery Beach in the following section of this report). Alternatively, a new road in the existing alignment of Wilson Street should be distinc- Traﬃ c backing up behind an oversize load tively landscaped with ample signage to create an attractive and informative entry to on the narrow Redbank bridge downtown for visitors. Support the duplication of Wilson Street and the Redbank Bridge to separate light and industrial traffic. Develop a more attractive entry for light traffic to the West End.

Bicycle paths The demand for safe routes for cyclists is increasing in Port Hedland. Of particular interest is a dedicated bike path between South Hedland, the historic downtown in the West End and other destinations along the coast. This route should be developed as the “backbone” of a more comprehensive system of bike paths connecting residential areas to retail, entertainment and recreation facilities, as well as major employment locations. In addition to a network of paths, facilities for cyclists, such as bike racks, lockers and water fountains should be included at key destinations. Develop a dedicated bike path that provides safe access between South Hedland and Port Hedland. Encourage cycling as an alternative to car transport by including appropriate biking facilities in all road works projects and at key destinations, and by encouraging employers to provide secure bike storage, showers and change rooms for their employees.

Rail The existing rail network is owned and operated by BHP Billiton, including the Goldsworthy line that runs east-west to Finucane Island, and the Mt. Newman line that runs north-south to Nelson Point. Traffic on both these lines is expected to increase in the coming years in line with the expansion of BHP Billiton’s iron ore operations. Increasing traffic on the Goldsworthy line will be a significant issue for access to South Hedland because of the at-grade rail crossing on Wallwork Road. The concept of re-routing the Goldsworthy line south of South Hedland was discussed, but dismissed

30 Land Use Recommendations

because of its prohibitive cost. A more feasible alternative for improving access to South Hedland is to grade-separate the Wallwork Road rail crossing, as supported in recommendations for the highway network. However, further investigation of the possibility of relocating the Goldsworthy rail line should be included in long-term planning of the rail system. New rail construction is currently underway by FMG whose 310 kilometre line from mining operations at Cloud Break will terminate just south of the Goldswor- thy line, with ore to be transported by conveyor across the BHP Billiton corridor to stockpiles at Anderson Point. Hope Downs and Rio Tinto are also currently conducting feasibility studies for additional rail lines to serve their proposed new berths at Stanley Point. While there are operational and logistical issues that discourage collaborative use of common lines, collecting new rail infrastructure in a combined corridor will minimise land use and traffic impacts. Combine new rail lines to the west side of the Port and/or the Boodarie Strategic Industrial Area in a rail corridor that limits the number of highway crossings and minimises the spread of rail lines across the landscape of the southwest entry into Port Hedland.

FINUCANE ISLAND COOKE POINT

Telstra CEMETERY tower WEST END BEACH

PRETTY POOL

Port boundary

REDBANK

Dampier Salt

Port boundary

WEDGEFIELD

Great Northern Highway

AIRPORT Service Port Hedland - Goldsworthy railroad Corridors (Broome Road)

Rail BOODARIE corridor INDUSTRIAL ESTATE

SOUTH HEDLAND

FMG railroad (under

r ailro Power plant ad

(und(u

nde Existing or planned rail lines construction)

Port Hedland - Newman railroad Proposed rail corridor SOUTH HEDLAND RURAL ESTATE

Great Northern Highway 0 12km Figure 15 Railroad network

31 Land Use Recommendations

Air service The Town of Port Hedland owns and operates Port Hedland International Airport. It has one of the longest runways in WA which meets the specifications for Boeing 737s and can accommodate larger aircraft in emergencies. There are no current plans for extension of the runways or other major infrastructure improvements. Should expansion be required in the future, the most likely extension of the runway will be to the northwest, where its length can be extended by approximately 20% without interference from the highway. Preserving this expansion corridor leaves considerable land available for other development, as outlined under 3.2 Industry. With respect to the air transport function of the airport area, the following actions are recommended: Preserve a future expansion corridor of approximately 1 kilometre in width, extending northwest along the centreline of the main runway. Limit development in areas adjacent to the runways to compatible uses that neither interfere with aircraft movements (for example, uses that attract birds or industrial processes that produce significant air quality impacts), nor are disturbed by them (for example, housing). The maximum height of development in surrounding areas is 52 metres, including chimneys and emissions plumes.

FINUCANE ISLAND COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

Port boundary

REDBANK

WEDGEFIELD

AIRPORT

SOUTH HEDLAND

Great Northern Highway

SOUTH HEDLAND RURAL ESTATE

0 12km

Figure 16 Airport obstacle limitation surface contours

32 Land Use Recommendations

3.1.2 Water

Supply Port Hedland’s water is pumped from bore fields on the Yule and De Grey Rivers and is managed by the Department of Water through the Port Hedland Regional Water Supply Scheme. Water is stored in tanks in South Hedland and then transferred to other bulk storage tanks in the Port area and on Finucane Island. Consumption levels are unusually high, with Port Hedland using approximately 50% more water per capita than Perth. This is probably due to significant volumes of potable water used by the mining industry for dust suppression. Although the community does not consider water supply a development constraint at this time, conservative growth predictions indicate that the De Grey and Yule bore fields may reach their supply capacity by 2012. Water supply, therefore, is an important constraint and must be taken into consideration when assessing new development proposals. In addition, Port Hedland should adopt more conservative practices in water use, such as minimising irrigated lawns and using drought tolerant species in streetscape planting and private gardens. The concept of “fit for purpose” water utilisa- tion and recycling of water on site should be encouraged in all developments. Protect the bore fields on the Yule and DeGrey Rivers by establishing a Special Control Area in the Local Planning Scheme to provide comprehensive land use controls over the bore fields and surrounding protection areas, including compliance with the recommendations of the Department of Water’s Water Quality Protection Notes and Water Source Protection Plans. Approval of industrial and commercial developments and all new residential developments, including workers camps and other transient accommodation, should be contingent on the adoption of appropriate water use efficiency strategies. The Town of Port Hedland should develop policies to promote the use of brackish water where possible and the re-use of grey water and other water efficient techniques in all development. Reduce water consumption through promotion of "xeroscaping" (low maintenance, drought tolerant landscaping) in private gardens and the public realm.

Wastewater treatment There are two public sewage treatment plants: at Spinifex Hill in the Cooke Point neighbourhood and in South Hedland (see Figure 17). According to the Water Corporation, these two plants together have the capacity to serve a maximum population of approximately 15,000, which under current growth projections, is not likely to be reached until about 2015. Notwithstanding this advice, however, it is estimated that the combined population of the Town of Port Hedland currently exceeds 15,000, with anecdotal evidence suggesting the current population is most likely in the range of 18,000 to 20,000. Wastewater from both plants is treated to a secondary standard (Level 2) and the majority is used to irrigate public open spaces and recreation facilities. While there is excess effluent at certain times of the year, the supply of treated water is insufficient for use in dust suppression which is a significant factor in Port Hedland’s high level of water consumption.

33 Land Use Recommendations

The only residential land not serviced by reticulated sewer is located west of the Old Hospital through to McGregor Street, with this service gap constraining higher density development of this area. The Water Corporation is currently scheduling connection to the sewer system in 2008-09. This is a significant improvement over previous estimates of when this work will be carried out, but to support priority development sites such as the vacant block adjacent to the hospital, every effort should be made to further expedite the connection. Upgrade of the Cemetery Beach section could also stimulate planning for relocation of the Spinifex Hill Treatment Plant. Several residential properties on Mc-

COOKE POINT

CEMETERY WEST END BEACH Spinifex Hill Wastewater Treatment Plant PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD

Great Northern Highway

AIRPORT

(Broome Road)

Great Northern Highway

SOUTH HEDLAND Public wastewater treatment plant Private wastewater treatment plant South Hedland Un-sewered area Wastewater Treatment Plant

012km

Figure 17 Wastewater treatment system

34 Land Use Recommendations

Gregor Street, immediately north of the plant, are within the primary 200 meter buffer around chlorine storage which is critical to the operations of a water re-use facility. In addition, all of the property from about Wodgina Street to Bell Street, is in the treatment plant’s secondary buffer area. As well as resolving this land use conflict, relocation of the Spinifex Hill plant would make a large area of land available for residential development in the sought after Cooke Point neighbourhood. Alternatives considered included incorporating the Spinifex Hill Plant into the South Hedland Plant, at an estimated cost of $55 million, and the construction of a replacement plant on BHP Billiton or Dampier Salt property. The latter options were eliminated due to possible contami- nation of the nearby salt ponds. Although not opposed in principle to consolidating the two treatment plants, the Water Corporation has no current plans to move the Spinifex Hill treatment plant. Despite the cost of relocation, however, the Land Use Master Plan supports this option due to the benefits of releasing additional land and permitting higher density development in existing neighbourhoods. Advocate the immediate connection of sewers to all the currently unserviced properties in Cemetery Beach. Relocate the Spinifex Hill treatment plant, preferably to a site within an industrial area or buffer zone where adjacent land uses are already limited by the nature of existing development.

3.1.3 Power supply

Electricity Horizon Power supplies electricity from a gas-fired power plant in the Boodarie Industrial Estate to sub-stations in Port Hedland, Wedgefield, South Hedland and Finucane Island. Supply appears to be adequate and there are no reported capacity issues limiting future development. The installation of underground power lines has recently been completed in the coastal neighbourhoods and there is considerable pressure to expand this program to South Hedland. Require underground power supply in all new development and support the systematic replacement of existing overhead power lines with underground service. Consolidate regional power lines where possible in a limited number of defined utility corridors to minimise the visual impact of overhead wires.

Gas Alinta supplies gas to the Boodarie power plant but there is no reticulated gas service to residential or commercial clients in Port Hedland. With the vast natural gas reserves of the Northwest Shelf relatively nearby, reticulated gas could be an attraction for new industries. Supplying reticulated gas, however, is a relatively expensive infrastructure project and introduces a range of safety requirements that could impact other development opportunities. Although not an immediate priority, the town should be alert to future opportunities to extend the use of natural gas as a power source. Support the definition of regional gas corridors through Port Hedland, as required by the possible future expansion of natural gas services in the region.

35 Land Use Recommendations

Renewable energy sources The only renewable energy source currently considered commercially feasible in Port Hedland is solar power which is already being used for water heating and some street lighting. Other possible renewable energy initiatives could involve wind and solar farming, or more experimental options such as geothermal fields, bio-diesel or grain oil production. Aside from technical constraints, wind and solar farming require significant land allocation in suitable locations which may not be available at present. Although it is premature to set aside a large area of land for such a use without details of any of the technical requirements, the Land Use Master Plan supports renewable energy projects in principle, and suitable efforts will be made to accommodate any defensible proposals. Support sound, entrepreneurial proposals for developing renewable energy sources for industry and/or the commercial and residential markets of the region.

3.1.4 Telecommunications Port Hedland is generally well served by its existing telecommunications infrastructure, with good mobile phone coverage, internet access and satellite Foxtel service. The most significant issue for the Land Use Master Plan is whether the location of the Telstra transmission tower on McGregor Street (see Figure 5) represents the best use of this large, elevated site. The existing Telstra facility is the termination of the undersea fibre optic cable from Indonesia which is part of WA’s global communications network. The feasibility of moving this connection is unknown, but at over six hectares, the site is large enough to support residential development as well as the existing tower, with possibly one or more open space easements to protect the underground fibre optic cable. No development, however, can occur while the sewerage treatment plant remains adjacent to the site. Moving the treatment plant therefore has the potential to release approximately 26 hectares of land, including the Telstra site, suitable for residential development. Include the potential return on residential development of the Telstra site in feasibility assessments of relocating the Spinifex Hill treatment plant.

3.2 Industry

Land for industrial development of all kinds is in short supply in Port Hedland, with significant current demand for additional land for the following four types of industrial uses: • noxious uses , including operations that generate excessive noise, odour, dust or other negative impacts; • transportation-related businesses that operate over-sized equipment and need immediate access to various kinds of specialised services such as refuelling and tyre replacement depots, truck washes or maintenance yards; • light industry , including construction yards, prefabricators and mechanical maintenance and repairs — similar to the array of small businesses that make up much of Wedgefield; and

36 Land Use Recommendations

• mixed businesses , including showrooms, warehousing, car and boat sales yards —the types of large scale retail and service activities that are inappropriate in a town centre. The Steering Committee debated all the available options for industrial expansion, leading to the following recommendations that were endorsed by the participants in the Community Summits (the numbers refer to the areas identified in Figure 18):

FINUCANE ISLAND COOKE POINT

CEMETERY WEST END BEACH

PRETTY POOL

REDBANK

Dampier Salt

WEDGEFIELD 2

Great Northern Highway

3 AIRPORT

4 (Broome Road)

BOODARIE INDUSTRIAL ESTATE

SOUTH HEDLAND

General industry/ noxious uses General industry/

Great Northern Highway transportation uses Light industry SOUTH HEDLAND Mixed business RURAL ESTATE 1

012km

Figure 18 Proposed industrial expansion areas

37 Land Use Recommendations

1. Noxious uses: For noxious and general industrial uses that have significant impacts on their surroundings, the Town of Port Hedland will define an area of approximately 200 hectares immediately south of the Boodarie Industrial Estate. This area is well removed from sensitive land uses; it has access to Great Northern Highway; and, because it is partly within the buffer of the existing power plant, its potential for any other kind of development is already compromised. The subject land is part of the Boodarie pastoral lease, held by BHP Billiton. The final size and configuration of the new general industry area will depend on detailed analysis of existing drainage patterns, flood elevations, soil conditions and other factors affecting development feasibility, and for practical reasons, it may include part of the existing Boodarie Industrial Estate. The Department of Industry and Resources (DOIR) has indicated that it will work with the Town and BHP Billiton to define a mutually satisfactory boundary, and is willing to consider releasing part of the industrial estate if required. The next step is for the Town to determine how much land is necessary to meet expected demand for the next 20-25 years and to undertake the necessary land capability studies and investigations of servicing issues. In addition to potential flooding, the environmental studies should investigate wind patterns and possible air quality impacts on South Hedland and the South Hedland Rural Estates. Potential impacts on areas of significance to Aboriginal people must also be evaluated.

2. Transportation-related businesses: Two possible locations for a concentration of transport-related uses were identified: the southern area of the airport, between the runways and the Goldsworthy rail line, and the area east of Wedgefield, around the existing Shell Road House. The first option has limited access unless the new segment of Great Northern Highway following the rail line is constructed (Alternative C of the previous discussion of highway improvements). Since this option is unlikely to be implemented for some time, if ever, the Land Use Master Plan recommends the Shell Road House site for a transportation hub. Access to the highway from this area must be via Pinga or Schilla- man Streets to avoid jeopardising the safety and efficiency of the connection between South and Port Hedland. The primary drawback of the location is that the area is almost entirely within the 100-year flood plain and extensive fill would be required to elevate flood sensitive elements above the storm surge line. The flooding threat could be eliminated, however, by construction of the causeway included in Alternative B of the highway improvement options that are currently being investigated by Main Roads (see 3.1.1 Highway Network above). To allow for a range of industrial uses, the area could be zoned General Indus- try which includes tranport-related businesses. To more explicitly target these kinds of businesses, however, a new “Transport Industry” zone could be defined for the area, including provisions for compatible industries to support the possible relocation of general industrial uses currently in Wedgefield (see Section 3.4 below).

3. Light industry: Alternatives for light industrial expansion include (a) the undeveloped property immediately south of Wedgefield, (b) the area between Great Northern Highway and

38 Land Use Recommendations

Wallwork Road, (c) a section of airport land east of Wallwork Road, (d) areas on either side of the Broome Road turn-off, (e) airport land south of the Great Northern High- way; and (f) the opposite area north of the highway. After lengthy discussion, it was agreed to eliminate options (d) and (f) because of their potential for flooding. Option (e) was also eliminated because it is isolated from similar industrial uses and commercial services, and the site may have greater value as an emergency location for temporary accommodation. The recommended strategy is to encourage light industrial growth to proceed south and east from Wedgefield, expanding through options (a), (b) and (c) as the demand for sites dictates. This approach builds on the existing strengths of Wedgefield; it takes advantage of the swathe of elevated land north of the railroad; there is ample land for future expansion through to the airport runway; and it begins to infill between South Hedland and Wedgefield. Area (a) between Great Northern Highway and Cajarina Street may not be available if new road connections to the Port are constructed in this area (see Alterna- tive A of highway network improvements under 3.1.1 Transportation above). Access to Great Northern Highway from all the areas is not resolved at this time. The area east of Wallwork Road, for example, may access the highway via North Circular Road which could have important implications for the development of the mixed business area discussed below.

4. Mixed businesses: The areas on either side of Wallwork Road, between South Hedland and the railroad, were the only sites considered for mixed business development. These areas are ideal for this use because they have excellent visibility from North Circular Road and easy access to the range of services available in the town centre; the development will increases employment opportunities in South Hedland; and it continues to build the connection between Wedgefield and South Hedland. See further discussion of this opportunity under South Hedland below. As required under the WA Planning Commission’s Industrial Policy 2.4 (a), these recommendations for industrial expansion through the next 20 - 25 years build on the existing Wedgefield precinct, concentrate industrial uses in a relatively limited area, take advantage of the existing highway network and its proposed improvements, and avoid conflicts with adjacent uses. As required under Policy 2.4 (b), different types of industrial uses are provided for, with the potential for internal conflict avoided by removing noxious uses to Boodarie. The design standards required under Policy 2.4 (c) will be established at a subsequent level of more detailed planning.

Example of a car sales yard with appropriate standards of architectural and landscape design

39 Land Use Recommendations

3.3 South Hedland

Starting at about the same time as the Land Use Master Plan process, the Department of Housing and Works (DHW) has been planning a major program of improvements in South Hedland through the New Living Program. It will invest $54 million in renovation and redevelopment of approximately 570 government-owned properties and the release of some 695 new lots, as well as streetscape enhance- ments and a range of social programs. The Land Use Master Plan Steering Committee has been working with the DHW team to ensure these simultaneous planning initiatives maintain an appropriate alignment. Key issues in coordinating the two plans have included phasing priorities and the development of a more efficient and legible overall structure for the town. On all other matters, such as proposed housing density and type, streetscape improvements, and the location of public facilities and neighbourhood centres, the planning philosophies appear to correspond closely.

Phasing priorities With respect to phasing, the Land Use Master Plan is guided by Environment Policy 2.1 (a), which advocates completion of already developed areas before moving on to virgin land. The recommended phasing strategy for South Hedland therefore involves: Phase 1: Renovation and in-fill of existing proper- Ha milton Road ties north of Murdoch Drive, with the only new lots Wallwork Road released being undeveloped land, or lots that have been created by realignment of streets or public open space within this area.

North Circular Road

WALNUT North Circular Road GROVE Phase 2: (which may proceed simultaneously with Phase 1) Renovation or redevelopment of sections

Cottier Drive of the existing Town Centre, such as the retail mall LAWSON 1 and the mixed-use blocks to the north, and comple- SHELLBOROUGH tion of the Town Centre precinct through to Forrest 4 Forrest Cir Circle in the west. A description of the proposed cle

Town Centre development is included below. TOWN CASSIA 2 CENTRE Phase 3: Renovation and infill of sites in Koombana, Murdoch Drive as in Phase 1. 5 Phase 4: Development of large parcels on Collier KOOMBANA 3 and Murdoch Drives in Shellborough and Koom- Phase 1 Phase 2 bana. Phase 3 Phase 5: Development of the southeast quadrant, Phase 4 Collier Drive Phase 5 east of Koombana. 0 500 metres

Figure 19 South Hedland development sequence To support timely progression through these development phases, the clearance ofNative Title on all zoned land in South Hedland should be initiated immediately.

40 Land Use Recommendations

Town Centre precinct With a new $129 million regional hospital about to begin construction on Forrest Circle, the shopping centre in urgent need of renovation or complete redevelopment, and various office tenants interested in moving to better quality space, this is South Hedland’s chance to develop an exciting urban centre that will offer a range of new activities and amenities, expand housing choices and establish a new image of the community. The existing Town Centre zoning should be extended to the western edge of the area on Forrest Circle and a detailed structure plan prepared for the entire precinct. This plan will provide a road map for achieving a higher density, mixed-use district, including a variety of permanent housing types, as well as tourist and transient workforce accommodation; additional retail, office and entertainment functions; public facilities — which may include relocation of the Council building from McGregor Street — and a civic square for community events and festivals. Properly integrated, these functions will produce a more diverse and active town centre and a new type of residential location in South Hedland.

...... a vibrant town centre with a dense mix of retail, oﬃ ce, civic and entertainment uses; housing of various types; places to meet and eat; sheltered sidewalks; easy access for pedestrians, cars and bicycles; spaces for markets and festivals......

41 Land Use Recommendations

Mixed Business area As discussed above under 3.2 Industry, the area between North Circular Road and the railroad is proposed for mixed business development, including the types of large scale retail and service activities that are inappropriate in a town centre, such as car and boat sales yards, product showrooms, warehousing and home improvement services. Feedback from the community revealed concern about supporting the existing commercial service area at Hunt and Byass Streets. To concentrate employment opportunities in the Town Centre, it was also suggested that new commercial development should be located on Forrest Circle, on sites created by covering the existing drainage channel that runs parallel to the Circle. Acknowledging these concerns, the Land Use Master Plan supports the expansion of existing commercial areas where possible, reserving the new Mixed Business area for uses that would adversely impact existing businesses, or ones that need larger sites than are available in the existing area. The possibility of covering the drainage channel, however, was rejected based on the cost and engineering challenges of maintaining adequate flood protection of the Town Centre and adjacent residential areas. In addition, developing a ring of commercial service uses around the Town Centre would tend to separate the centre from surrounding neighbourhoods. In response to comments about maintaining access to Deep Water, the aban- doned quarry on the east that may warrant development as a dirt bike recreation area, the Land Use Master Plan further recommends that development of the Mixed Busi- ness zone should be phased from west to east, starting with sites on Hamilton Road and west of Wallwork Road.

Overall structure It is generally agreed that one of South Hedland’s biggest problems is its con- fusing and inefficient street layout — along with a town centre that is hard to get to and nowhere near the centre. Through the New

Hamilton Road Living Program, South Hedland has a once-in-a-

Wallwork Road lifetime opportunity to modify the existing structure of the town and resolve some of the most damaging errors of a plan that has been largely

North Circular Road WaterW responsible for the community’s decline. tower WALNUT GROVE

North Circular Road Several designers have advanced the idea that a new road providing a direct route into Cottier Drive LAWSON the town centre from the arrival roundabout

SHELLBOROUGH would significantly improve the legibility and con-

Forrest venience of the street network (Figure 20). This Cir cle

so-called “spine road” would lead south from the Murdoch Drive TOWN CASSIA CENTRE roundabout, through the central open space, to Cottier Drive, and hence, to Forrest Circle and the Town Centre. With minor variations on this theme, the New Living Program has adopted the concept as the centrepiece of its proposed KOOMBANA Public open space new structure for the town. New housing While supporting the idea of a more Neighbourhood convenience centre Collier Drive New mixed business district direct entry and improved access to the Town Centre, the community has expressed concern Figure 20 South Hedland spine road concept about a major road dividing the town in two and

42 Land Use Recommendations

the loss of public open space. The Land Use Master Plan team therefore proposes an alterna- Hamilton Road tive that redirects the entry to Hamilton Road, as proposed in the original town plan [Heritage Policy 2.2 (b)]. The proposed bridge over the Wallwork Road railway creates an opportunity for realignment Water tower WALNUT of Wallwork Road because the new crossing will GROVE probably need to be built in a different location North Circular Road from the existing crossing to maintain access dur- Cottier Drive ing construction (see 3.1.1 Highway Network LAWSON above). To ease traffic flows at Hamilton Road, SHELLBOROUGH the intersection with a realigned Wallwork Road Forrest Cir cle may require a traffic circle or left-turn slip roads. Murdoch Drive TOWN CASSIA Alternatively, the new road could enter CENTRE on Parker Street, accessing the Town Centre via an up-graded Lawson Street. The advantage of this alternative is that it provides a direct route into the Town Centre, and additional traffic on KOOMBANA

Lawson Street would support redevelopment of Central park the currently vacant convenience centre in the New housing Neighbourhood convenience centre Lawson neighbourhood. Collier Drive New mixed business district A third alternative could offer several routes into the Town Centre instead of a single Figure 21 South Hedland Hamilton Road concept entry. With the traffic divided amongst a number of routes, the volume on any one of them will be reduced. In all the options, a central corridor of open space is preserved which could provide a series of sporting and recreation facilities to bring Hamilton Road residents of all the neighbourhoods together in a shared community space. The bowling and ten- nis clubs on Hamilton Road, for example, could Water be relocated to the central open space, freeing up tower WALNUT a valuable site with excellent exposure, adjacent GROVE North Circular Road to the Town Centre, for tourist or permanent residential development [Public Facilities Policy Cottier Drive 2.7 (c)]. LAWSON SHELLBOROUGH This central spine should incorporate Forrest Cir cle existing open spaces where possible, improv- Murdoch Drive ing their amenity and usability by different user TOWN CASSIA CENTRE groups. Existing Pundulmurra trees should be preserved, in a landscape concept that showcases native plant species and water-wise landscaping techniques. Where possible, the central open space corridor should also encompass ap- KOOMBANA propriate parts of the drainage reserves, based Central park New housing on information from local residents on where to Neighbourhood convenience centre Collier Drive focus landscape improvements. It has been sug- New mixed business district gested, for example, that there should be an area designated for Aboriginal people to meet in the Figure 22 South Hedland Lawson Street concept

43 Land Use Recommendations

drainage reserves, possible behind the Centrelink facility, in the area between Traine Cescent and Shay Gap Park, on the track from Cottier Drive to Paton Road, or in the area behind the College Flats. These concepts were reviewed in the second Community Summit and there was considerable support for an approach that avoids the spine road, and for the central corridor of public open space. The next step is to develop all the options to a compara- ble level of detail so that a more rigorous evaluation can be undertaken of their relative planning, urban design, engineering and traffic impacts. Without the results of such an analysis, the Land Use Master Plan at this point can only indicate a preference for the central corridor of open space concept, alluding to the relevant principles of: • minimising impacts on natural areas [Environment Policy 2.1 (a)]; • maintaining traces of historic development patterns [Heritage Policy 2.2 (b)]; • supporting new development opportunities − in the proposed mixed business area [Infrastructure Policy 2.3 (c)]; • supporting neighbourhood convenience and small business opportunities − along new entry road(s) [Commercial Policies 2.6 (e) and (f)]; • high standards of public amenity− in the central community open space [Public facilities Policy 2.7 (a)]; and • maximising the value of public sites – in redevelopment of the bowling and ten- nis club sites [Public Facilities Policy 2.7 (c)].

3.4 Wedgefield

Wedgefield presents a unique land use planning challenge that has developed through a long history of questionable planning decisions and community struggle for recognition. The area was originally established in 1965 as a light industrial area for the service industries and small businesses required to support the mining sector. Caretak- ers' dwellings were a common feature of development of Wedgefield, as permitted in light industrial areas by the Town Planning Scheme. Over time, however, the light industrial character of Wedgefield was corrupted by the development of various general industrial uses, and an industrial waste incinerator (Tox–Free) which is classified as a “noxious use”, requiring a 1,000 meter separation from sensitive land uses —such as housing. When this facility was approved, the nature of living quarters in Wedgefield had evolved from caretakers’ dwellings to more substantial family homes, including a transient workforce accommodation facility which houses over 600 people on Schillaman Street —across the road from the Tox–Free facility. In response to this increasing mix of incompatible uses, the Town of Port Hedland imposed a mora- Wedgeﬁ eld from the air, with the industrial waste torium on the approval of further caretakers’ dwellings facility in the foreground in Wedgefield. Although this action halted any increase

44 Land Use Recommendations

in the number of people living in Wedgefield, it is not an acceptable long–term solution because it does nothing to reduce the hazard to existing residents, and it unfairly restricts the development potential of properties on which caretakers’ dwellings were not already approved at the time the moratorium went into effect. In addition, it calls into question the security of tenure for existing residents, and has heightened concerns about the possible development of general industrial or noxious uses on adjacent Port land. In developing its recommendation on the future of Wedgefield, the Land Use Master Plan Steering Committee agreed on the following basic principles: • Light industrial and service activities are a critical component of the Port Hedland economy. • Because of high land and development costs, general housing shortages and security concerns, small businesses need a location where proprie- tors have the opportunity to live on business properties. • Given its existing development character, proximity to South Hedland, and opportunities for expansion, the most suitable location for this type of light industrial “mixed use” district is Wedgefield. (Other possible locations include the Anderson Street area in the West End, and the Bell Street area, south of the Dampier Salt evaporation ponds. These areas should be further studied to determine their suitability for treatment similar to that proposed for Wedgefield below). • To reduce the exposure of people already living in Wedgefield, all noxious uses (particularly Tox–Free) must be moved as soon as possible. • To achieve an acceptable level of environmental risk for more people to live in Wedgefield, all general industrial activities must be relocated. • General industrial uses cannot relocate until suitable land is made available elsewhere. • In addition to removing hazardous uses from within its own boundaries, Wedgefield also needs to be protected from the potential impacts of incompatible land uses in adjacent areas. • The planning mechanism for achieving the appropriate location of different land uses is zoning.

Based on these central principles, the Land Use Master Plan recommends the following zoning changes: Rezone the Wedgefield Special Control Area to Light Industry, making noxious uses "non–conforming", and converting existing general industrial uses to "additional uses" for a period of ten years from the date that new land suitable for general industrial use is released for development. Following this 10-year period, all general industrial uses in Wedgefield also become non–conforming. Through this action, the Town of Port Hedland clearly supports relocation of the Tox-Free incinerator, but it has no authority or financial resources to affect the move, and currently, no suitably zoned land elsewhere in the township. The proposed general industrial area south of the Boodarie Industrial Estate may prove suitable for noxious uses, and an alternative location for at least part of the Tox-Free operation may be available on a site outside of Karratha. No commitments or funding, however, have been secured to support relocation at this time.

45 Land Use Recommendations

Under the Light Industrial zoning proposed for Wedgefield, caretakers’ dwellings should be permitted with Council approval (“SA” uses) and regulated through the adoption of a Local Planning Policy. No further caretakers’ dwellings, however, will be permitted until noxious and general industrial uses have been relocated. The process for implementing the relocation of uses that conflict with caretakers' dwellings involves three key steps: 1. Make suitably zoned land available elsewhere. The Land Use Master Plan recommends two areas for General Industry: the area immediately east of Wedgefield around the Shell Roadhouse, and the area south of the Boodarie Industrial Estate. The Town of Port Hedland should work with DOIR and LandCorp to achieve the release of these areas as a high priority. 2. Work with the Wedgefield Association to clarify the definitions of “general” and “light” industry and identify the existing uses in Wedgefield that should be relocated. It is possible that with suitable site improvements and/or operational changes, some of the existing general industrial uses in Wedgefield could be reclassified as light industry. The Town of Port Hedland should work with business owners and relevant government agencies to develop the performance criteria under which existing businesses may be able to qualify for reclassification. 3. Investigate possible financial incentives and other suitable mechanisms, such as negotiated land swaps, to assist in the relocation of existing general industrial uses when appropriate land becomes available. To protect Wedgefield from the impacts of General Industry in surrounding areas, the following buffer policy is recommended: Establish a 500 metre off–site buffer around Wedgefield (Figure 23) within which only low impact industrial uses may be located. This includes the on-site buffer proposed on Port land under Section 3.1.1 above, and continuation of a similar protection on the southeast boundary of Wedgefield to avoid future land use conflicts developing in the new general industrial area proposed in the area around the Shell Roadhouse.

500m

Proposed Port expansion Light industrial expansion Proposed General Industry area On-site Port buffer Off-site Port and General Industry buffer

012km

Figure 23 Wedgeﬁ eld buﬀ ers and expansion areas

46 Land Use Recommendations

Finally, the Land Use Master Plan also recommends review of the existing provisions for caretakers' dwellings in Wedgefield: The Local Planning Policy should recognize that living in Wedgefield is generally a financial decision relating to local factors beyond the need for on-site security. The appropriate definition of on-site living quarters should be considered, which may lead to revision of the permissible size of caretakers’ dwellings, or the adoption of a new land use category such as “business residence”.

3.5 Redbank

Redbank is located on a small strip of elevated land adjacent to the headwaters of South East Creek. Many different ideas were floated for this section of the town that generally fell into three categories: light industrial uses, rural activities such as market gardening or nurseries, and tourism, focused on Aboriginal heritage and the nearby creek and mangroves. A concern was expressed over the concept of developing a new location which could compete with mangrove interpretation facilities planned at Pretty Pool, and with existing Indigenous cultural experiences at the Spoil Bank, Pretty Pool and at the Wangka Maya Centre in South Hedland. Of the various opportunities, however, tourism sparked the most interest and was enthusiastically endorsed in discussions with local Aboriginal people. The Land Use Master Plan therefore supports the development of a range of tourist uses at Redbank, capitalising on its location, environment and Aboriginal heritage – with rural or light industrial uses as a “fall back” position if the tourist opportunities prove economically infeasible. Because of its elevation and visibility, particularly from Great Northern High- way, Redbank forms something of a gateway to Port Hedland and could be developed as an “entry statement” for the town – although its current character does little to capitalise on the opportunity. With appropriate landscape improvements, graphics and signage, however, Redbank could become a convenient and accessible location for a “welcome centre”. In addition to tourist information, the centre could provide a range of services and attractions, including small scale, bed-and-breakfast type accommodation facilities, as currently permitted under the existing rural residential zoning. Attractions could include a more accessible lookout on the crest of the Redbank Bridge, where visitors could learn about the evaporative process of salt production and BHP Billiton’s massive ore trains. It is important, however, that access to such a lookout does not compromise traffic flows across the bridge. South East Creek could become the spine of a possible nature reserve, where an interpretive boardwalk through the mangroves could be used to explain the ecology of the coastal plain and provide opportunities for exploring the rich aquatic and bird life of a tidal waterway. This nature walk could terminate in a lookout at Smith Point where visitors could view shipping activity in the harbour and learn about the challenges of balancing economic development and environmental conservation in one of the world’s largest ports. It could also provide access to tidal Th e view south from the Redbank bridge

47 Land Use Recommendations

fishing and crabbing opportunities, with expeditions lead by Aboriginal guides demon- strating traditional hunting and fishing techniques and survival skills. The catch of the day could be brought back to a campground and cooked in traditional ways, with a corroboree around the campfire to wind up the day. To ensure appropriate protection of the natural environment, a spring flora and fauna survey should be conducted and an Environmental Management Plan approved by DEC prior to any development. The Aboriginal people consulted were particularly interested in the idea of converting the old power station into an Indigenous Cultural Centre or Aboriginal Art gallery, and any development of this type must include Indigenous input and ownership. The first step in turning ideas like these into reality is usually finding a project champion who has the enthusiasm and connections to sell the concept to a wide range of potential investors and government agencies.

Interpretive trail through the mangroves along South East Creek

BHP Billiton Port Authority

k ree C y gra Stin

Port lookout

S ou th E as Possible t C Indigenous Cultural re ek Centre

Mangrove nature walk

Figure 24 Redbank tourism concept

48 Land Use Recommendations

3.6 West End/Cemetery Beach

For the purposes of the Land Use Master Plan, the West End is defined as the area from the Port to Taplin Street, and Cemetery Beach is the area from the hospital to the water tower and Council offices on McGregor Street, including part of the racecourse. Although quite different in character, these sections of the town are considered together because they are functionally interdependent, with changes in either area significantly impacting the other. They are also the section of the town most affected by proximity to the industrial activities of the Port. The West End is the oldest part of the town, containing the original town centre and most of the heritage sites that demonstrate some of the aspects of life in Port Hedland before mining. Today, this area is dominated by industrial uses and offers the best vantage points for viewing the mysterious machinery of mining at work and the huge ore carriers entering and leaving the harbour. The price of such a dramatic setting, however, is dust, and planning for the future of the West End and Cemetery Beach is inevitably focused on the issue of what kinds of development are appropriate for an area adjacent to one of the world’s largest bulk materials handling ports. For direction on this issue, the Land Use Master Plan turned to the Depart- ment of Health that has been monitoring the health impacts of air quality levels in Port Hedland for some time. From a recent analysis of hospitalisation data, the Health Department has concluded that there is a small but significant increase in the incidence of hospitalisations in areas west of the Old Hospital site. With respect to land use, the Department has strongly urged the Town of Port Hedland to take appropriate rezoning Th e Port control tower, visible through actions to reduce the likelihood of long term tenure within housing in this area, particu- the trees from Th e Esplanade larly by young people and the elderly as these groups have been identifies as being at higher level of risk of respiratory related hospitalisation. By "housing", the Department is specifically concerned about permanent accommodation, and has confirmed that its

Finucane Island

Spoil Bank CEMETERY WEST END BEACH

Old Hospital Anderson Street

Downtown Wilson Street The Racecourse Boulevard

Port Hedland BHP Billiton Port Authority Iron Ore

RESIDENTIAL COMMERCIAL PUBLIC FACILITIES INDUSTRY Single family housing Retail Education Light industry Group housing and apartments Office Services Heavy industry Hotel and other short-term accommodation Commercial services Recreation and open space Utilities and communications 0500 metres Figure 25 West End/Cemetery Beach existing land use

49 Land Use Recommendations

recommended restriction does not apply to tourist or short-stay accommodation, or to any of the commercial or entertainment uses that are typically found in a town centre.

From this conclusion, the Land Use Master Plan proceeded on the assump- tion that the historic downtown could remain the commercial centre of the West End/ Cemetery Beach area — a concept strongly endorsed by the Steering Committee and community participants. To expand as a more vibrant and attractive location, however, it was recognised that without the activity generated by in-town housing and adjacent higher density residential areas, the historic downtown area had limited opportunity to achieve the lively, mixed-use character of an economically robust, full service “town West End, the Spoil Bank and centre”. Furthermore, the location of the historic area at the far west end of the coastal Cemetery Beach beyond strip is distant from the bulk of the population and not immediately visible to tourists and business travellers. The planning process therefore considered several alternatives for the location of a new town centre in the West End/Cemetery Beach area, including the Old Hospital site and the area around The Boulevard shopping centre.

Old Hospital area

With its relatively high elevation, grand views of the coast and immediate access to the Spoil Bank, the Old Hospital occupies an extraordinary site with dramatic development potential. The new hospital in South Hedland is expected to be completed in 2010, making the coastal site available in a relatively short time frame. Plans are also progressing for development of a new marina on the west side of the Spoil Bank which will add a significant attraction to the area. In addition, there is a large vacant site immediately east of the hospital which has recently been released as a hotel development site. Significant development opportunities also exist in undeveloped land between Moore and Anderson Streets to the east. A concept sketch of a possible town centre layout in this area (Figure 26) shows the excellent opportunities for an ocean-front development, with strong connections to the proposed marina and recreation areas of the Spoil Bank; hotel, restaurant and high density residential development lining a waterfront promenade; a mall of mixed retail and office uses with good visibility from the Anderson Street entry; and supporting medium density residential development on the Moore Street sites. The chief drawback of this location as a new town centre is its limited north- south dimension and the lack of opportunities for future expansion. The development would also have significant impacts on downtown and The Boulevard, drawing activity away from the already struggling commercial uses in these areas. As a hotel and residential location, however, with the limited retail and restaurant uses typically associated with a high-end tourist facility, the area has no equal in Port Hedland. Moreover, with improved pedestrian access along the waterfront, it would support further recreational shopping, entertainment and cultural activities in the historic downtown. With significant demand for increased short-stay accommodation and limited land specifically zoned for tourism development on the coast, the Land Use Master Plan recommends immediate development of a hotel complex on the vacant site adjacent to the Old Hospital. Although the site is considerably larger than necessary for a major hotel, the amount of permanent residential development included in the project should not compromise the tourism priority of the area which should be maintained in future redevelopment of the Old Hospital site itself.

50 Land Use Recommendations

Although development of the vacant site should proceed as soon as possible, the Land Use Master Plan recommends establishing a Special Control District over the Spoil Bank, the Old Hospital area (from Howe to Acton Streets, north of Anderson Street), and along the waterfront, from Marrapikarinya Park to Cemetery Beach Park (see Figure 30). A detailed Structure Plan should be prepared for this area to ensure the successful integration of the waterfront and land-side development, creating a significant tourism location while maintaining appropriate public access for the whole Port Hedland community. This Structure Plan will detail appropriate uses for the Spoil Bank and establish guidelines for the density and character of development, public access, and the control of potential environmental impacts, including the effects of artificial lighting on sensitive turtle nesting areas. Design criteria for development of the area should include recognition of its heritage elements, including interpretation of the history of the original hospital, and preservation of the Tamarind Tree and limestone ridge which have significance to Abo- riginal people. Functional connections to the West End should be emphasised, with pedestrian and bicycle paths developed along the coast and tourist information about cultural and entertainment attractions in the West End.

Fixed tents

Boat launch and storage yard Caravan Park

YachtYhtClb Club

P P

Hotel and High density housing Townhouses or Mixed business serviced apartments 5-8 storeys over retail, 5-8 storeys garden apartments, Townhouses or R50 garden apartments, R30 Retail and commercial services with offices or 0200 housing above - to 3 storeys metres Figure 26 Old Hospital site: town centre concept

51 Land Use Recommendations

Primary access to the area is to be from Sutherland and Anderson Streets. Non-industrial traffic should be encouraged, through signage and intersection improvements, to exit Wilson Street at McGregor, Coolinda or Short Streets to avoid conflicts with industrial vehicles servicing the Port or BHP Billiton facility.

The Boulevard area The advantages of this area for a new town centre include its location at the centre of the coastal neighbourhoods and its visibility from Wilson Street as the entry to the coastal section of Port Hedland. Maximising this opportunity will most likely require relocation of the racecourse to create a large development area. Opportunities for a new town centre at the McGregor and Wilson Street intersection were explored in three potential growth scenarios, from minor additions to the existing shopping centre, to moving the racecourse to create a significant mixed-use development site.

Option 1 The most modest of these scenarios leaves the racecourse in its present lo- Main entry of the existing cation and uses the available land between the racecourse and McGregor Street for retail centre at Th e Boulevard mixed retail and office development, with similar uses developed along the McGregor Street frontage of the existing shopping centre. These commercial uses could also be

ExistingExistinng sshoppinghoppinng cecentrentre P

Townhouses or Additional retail or office space, up to 3 storeys, garden apartments, with residential, office or storage spaces above. R30 to R50 New retail space included in comprehensive up-grade and expansion of The Boulevard 0 200 metres Figure 27 Th e Boulevard: expansion Option 1

52 Land Use Recommendations

supported by townhouse or live/work residential units on the strip of Crown land north of shopping centre and the adjacent church, along Anderson Street. This scenario is similar to renovation and expansion concepts already floated by the owners of The Boulevard and could proceed almost immediately.

Option 2 The second option moves the racecourse to the east to free up land for a more extensive mixed-use development on a new pedestrian-oriented street parallel to Wilson Street. In this alternative, Anderson Street is continued east to offer a new entry to town for light traffic on Wilson Street; a new townhouse or garden apartment neighbourhood is developed in the area made available on the south side of McGregor Street, overlooking the racecourse; and land for more extensive residential development west of the shopping centre is created by relocating the church to a more promi- nent position closer to Wilson Street. While participants were sceptical about the (mostly political) practicality of moving the racecourse, there was strong support for development of a more attractive entry to the town on Anderson Street. This could also be achieved through the Don Rhodes Mining Museum Park west of The Boulevard, or by realigning Coolinda Street.

Townhouses or garden apartments, R50 Townhouses or garden apartments, Retail with office or housing above, R30 to 3 storeys 0 200 metres Figure 28 Th e Boulevard: expansion Option 2

53 Land Use Recommendations

Option 3 The third option moves the racecourse as far east as possible to create a large “clean-slate” site for a comprehensive new town centre, including extensive residential development of various types, a significant amount of retail and office development around a public square, and extension of the main entry to Lukis Street to create a route for light traffic into town along the waterfront. This option received little support and was generally considered unrealistic in light of Port Hedland’s anticipated population growth.

P P

Live/work units Townhouses or Townhouses or or shop-top housing garden apartments, R30 to R50 garden apartments, R30 to R50 Retail with housing Retail and commercial services or offices above with offices above - 3-5 storeys 0 200 metres Figure 29 Th e Boulevard: expansion Option 3

The final conclusion on The Boulevard area was that aspirations for its future as the town centre of the coastal area of Port Hedland were probably impractical, but it is important as a convenience centre, particularly for residents of Cooke Point and Pret- ty Pool and travellers entering and leaving town. The consensus approach therefore, is to support renovation and expansion of the existing shopping centre, along the lines of Option 1, but designed in such a way as to allow future expansion, particularly the extension of Anderson Street as the new main entry into town. Moving the racecourse to the east is also considered an important future opportunity, making valuable land available for further commercial or mixed-use development, or for an unanticipated institutional use such as a private school or university campus.

54 Land Use Recommendations

From the above investigation of options for a new town centre, the Steering Committee concluded that instead of a traditional town centre as the single focus of commercial and entertainment activities, the coastal area of Port Hedland is better po- sitioned to support a series of complementary activity nodes: a convenience centre at The Boulevard, a tourist and outdoor recreation centre in the Old Hospital/Spoil Bank area, and a mixed commercial district focusing on cultural, entertainment and tourism activities in the historic downtown.

Downtown The recent renovation of the Courthouse Gallery and landscape improvements in the surrounding area have stimulated confidence in the potential of the historic downtown to become a more active and attractive area for both residents and tourists. A new restaurant is opening up on Edgar Street, opposite the gallery, the lunch trade on Wedge Street is improving, and various ideas have been floated for new attractions such as a marine interpretive centre, and facilities that provide better opportunities for viewing port activities, highlighting the Indigenous heritage of the area, and explaining the histories of mining and the pastoral industry. The Land Use Master Plan’s approach to building on these promising trends is to expand the boundary of the existing town centre zoning to Withnell Street to encourage further retail, entertainment and arts-related uses in the area. While further permanent residential uses would not be permitted without Council approval, tourist and transient workers’ accommodation will be encouraged to increase pedestrian activity levels in the area, particularly at night, and support the development of a wider variety of commercial uses and cultural and night-time entertainment venues. A detailed Structure Plan for the expanded town centre zone should be prepared, establishing a strong urban design structure for the area and showing how new and existing development is to be integrated into a comprehensive network of public open spaces, pedestrian connections and improved streets. Detailed design guidelines should also be developed, mandating elements such as double-glazed windows and doors, exterior materials and colours. New public spaces and art works are attracting visitors to the Courthouse Gallery area

Lessons from the Chinatown tourist area in Broome: a dense mix of commercial and entertainment uses to create a consistent level of activity; comfortable, shady sidewalks and numerous places to sit and watch the passing parade

55 Land Use Recommendations

Residential zoning With the concept of the three activity nodes established in the West End/ Cemetery Beach area, what remains is the issue of appropriate densities for the residential areas between them. Currently, the area west of the Old Hospital site is zoned R12.5/50, and the area to the east is R12.5/30. A split coding was developed because of the lack of deep sewer connections in this area and only properties that can provide adequate on-site septic systems are permitted to develop at the higher density code. The Department of Health has advised the Town of Port Hedland, however, that no further on-site septic systems will be permitted for residential development beyond single dwellings on land not serviced by reticulated sewer. Water Corporation is proposing to connect all properties in this area to mains sewer by the end of 2010. In contrast to the existing zoning that permits higher residential densities in the West End, the Health Department has receommended that planning controls be implemented to minimise the opportunity for elderly and very young people to reside in the area west of Taplin Street. Additionally they have recommended that measures be implemented that encourage shorter term stays in the West End. The Department of Environment and Conservation (DEC) and the Department of Industry and Resources (DOIR) also support this position. The Port Hedland community, however, has consistently stated its preference for higher density (R50) development in the West End, to increase activity levels and enhance the commercial viability of both the historic downtown and the proposed new tourist node in the Old Hospital/Spoil Bank area. Adopting the Health Department and DOIR’s position as stated discounts the community’s input through the consultation process and will disadvantage property owners west of Taplin Street. On the other hand, ignoring the recommendations of these key government agencies may result in rejection of the Land Use Master Plan by the WA Planning Commission. In searching for a solution to this dilemma, a variety of alternatives were discussed for the residential area west of the Old Hospital, including: • Maintaining the existing maximum density at R50, but only allowing 1- and 2-bedroom units suitable for younger households without children.

Special Control CEMETERY District BEACH WEST END

R12.5/30 R 12.5/50 R12.5/80 Anderson Street Town Centre The Wilson Street Boulevard

500 BHP Billiton 0 Port Authority Iron Ore metres Figure 30 One of the several zoning options discussed for the West End/Cemetery Beach area

56 Land Use Recommendations

• Reducing the maximum density to R30, with a maximum unit size of 3-bedrooms and only one 3-bedroom unit permitted per lot. • Changing the zoning to R12.5/30, with R30 achievable only in 1-bedroom units. • Abandoning the R-codes in favour of a bedroom-yield approach where the total number of bedrooms permitted on a site is calculated according to a formula that will result in an overall reduction in the number of people living in the area. For example, under a formula of 1 bedroom per 200 square metres of site area, a site of 1,200 square metres would support a total of 6 bedrooms, developed in units of any type. • Reducing the zoning, with compensation for affected property owners. • Doing nothing until the results of current studies are available to clarify the health risks imposed by dust levels in the West End. After extensive discussion of these alternatives, the Steering Committee de- cided to delay any recommendation on zoning for the residential area in the West End until such time that further information became available. The cumulative impact as- sessment report was completed in early 2008 with the results indicating (in summary): Typical R30 development • Dust levels in the West End exceed the recommended ambient criterion of 50 μg/m3 (micrograms per cubic metre) with the readings varying from 70 – 300 μg/m3. • With changes in crushing and screening processes, it is projected that the dust footprint from the Port/Nelson Point will reduce, with the 70 μg/m3 contour line moving west from the Civic Centre to Taplin Street (approximately). • While the dust footprint is projected to reduce, areas of the West End will remain above 50 μg/m3. • Increases in trucking and shipping movements into Port Hedland are likely to increase the levels of nitrogen oxide and sulphur oxide in the air. Planning controls will need to be implemented by Main Roads, the Port Authority, the Council and others to adequately address this issue.

The report recommended: An agreed framework for the future development of Port Hedland: • Focusing on high level strategic planning • Clear objectives for future land development across Port Hedland Typical R50 development • Management and monitoring of cumulative environmental impacts arising from a combination of port operations and associated activities. • Supported by an environmental and community health policy that provides clarity on the acceptable environmental standards to be achieved in the area, both now and into future • Supported by planning strategies that reduce the likelihood of placing people in this west end location for any extended period of time are pursued or supported • A long-term strategic management plan for the predicted significant increase in road traffic needs to be developed, taking into account risk, noise and air quality amongst other factors.

Based on these findings a group involving the Department of Planning & Infrastructure, Department of Environment, Department of In- Typical R80 development

57 Land Use Recommendations

dustry & Resources, Department of Health, Landcorp and the Town of Port Hedland met to discuss an appropriate direction forward. It was agreed that a three-tiered planning approach would be undertaken. This involved:

Tier One – Land Use Master Plan Changing the wording within the Land Use Master Plan to reflect current knowledge and indicate proposed planning solutions. The Land Use Master Plan should include broad policy statements and directions on appropriate future land uses and developments in the West End.

Tier Two – Planning Scheme Control A new West End Residential Development Town Planning Zone should be established, comprising the residential land West of Taplin Street to Withnell Street. The proposed new zoning would specify certain uses that would not be allowed within that area including schools, child care facilities and aged care facilities. Residential dwellings should be permitted but single houses should be discouraged to make it less attractive for families and elderly people to living in the area and more attractive for working-aged people to live there. Other controls such as dwelling size limitations and bedroom number restrictions should also be included within the scheme amendment for this new zone.

Tier Three – Design Guidelines: Local Planning Policy A local planning policy should be developed and adopted under the Town Planning Scheme to address issues of dust, noise and amenity. Like the Residential De- sign Codes, these should include Acceptable Development and Performance Criteria standards.

Given the above approach, the following policy principles and planning guidelines are recommended for the residential area between Withnell Street and Taplin Street:

Overall Planning Outcome • The Port of Port Hedland will continue to grow and will become one of the largest ports in the World. Sustainable Port growth should be encouraged. • The West End of Port Hedland is the historical heart of the Town of Port Hed- land. The proximity of the West End to the ocean, restaurants, retail and industry itself makes it a desirable place to live, visit and/or recreate for many people. • The growth of both the Port and other non-industrial uses within the West End does create unique planning issues, but the implementation of innovative solutions by industry, the Port Authority and the Town can ensure that these uses can cohesively grow together in the future.

Policy Principles: Resource Growth – Managing and Minimising Impacts • Future resource industry and port growth should aim to have little or no impact on adjacent residential, commercial and industrial properties. • Future resource and port industry growth plans must adequately demonstrate that reasonable care is being taken to ensure that this principal is adhered to.

58 Land Use Recommendations

Policy Principles: Town Planning Action • Action needs to be taken to address existing industry impacts on the residential, industrial and Town Centre areas west of Taplin Street. • While health and amenity impacts can not solely be controlled by subdivision and density control, town planning can control the types of uses that are encouraged and discouraged in the West End. Land use controls should be implemented that: – Discourage permanent occupation of the West End area by very young and very old people. – Add vibrancy to the area by encouraging tourism, entertainment and retail experiences. – Maximise opportunity for the area to be occupied by working-aged people. – Ensure that all land owners and land occupiers that use the area are aware of the noise, dust and air quality issues and associated risks.

• Controls that are recommended to be developed include: – The Development of a New West End Residential Development Zone within the Town Planning Scheme that specifies the type of uses that are permitted and not permitted within area. Uses that encourage young people, and old people to live or spend significant time periods in the ‘West End’ should be discouraged. – Changing the R coding in the area to a “Minimum of R30” to encourage smaller housing units. – Placing a maximum internal floor area of 110m2 per dwelling to restrict the development of large houses. – Placing a limit of 2 bedrooms per dwelling to restrict the development of family style housing. – Providing ‘additional use’ rights to approved existing single residential housing units (upon application) but making a single house an ‘X’ use (ie. not permitted) under the proposed new West End Residential De- velopment Zone. – Developing and adopting Residential Design Guidelines for the new Zone under the Town Planning Scheme that address the issues of dust mitigation, noise mitigation and amenity. – Ensuring that notices are placed on titles to alert land owners and tenants of the Department of Health’s recent report on potential health impacts of dust.

For the area from Taplin to Crawford Street, the Plan recommends changing the zoning from R12.5/30 to R12.5/80, with the lower coding deleted with the availability of reticulated sewerage, as above. Additional density in this area is warranted by its proximity to commercial and recreation facilities, and the redevelopment potential of several large waterfront sites, including the All Seasons and Great Western hotels and the site of the Council offices. This provision, however, does not commit any of these major sites to residential development, nor does it supercede any requirements to mitigate the impacts of multi-storey buildings on turtle nesting areas.

59 Land Use Recommendations

3.7 Cooke Point

The area east of the Council offices is one of the most desirable neighbourhoods in Port Hedland and is consequently, almost fully developed, in densities from R15 to R50. One of the key remaining development opportunities is the former Detention Centre on Dempster Street which the Town of Port Hedland has only recently con- vinced the Commonwealth Government to release for tourist and short-stay accommodation redevelopment. The Commonwealth is currently only offering a two-year lease on the site, but it is likely that the land will eventually be sold as a development site. Like the Old Hospital site in the West End, this is an ideal location and setting for a high-end tourist facility or high density residential development. The site is currently zoned R50, but a higher density may be considered to encourage a landmark building to anchor the eastern end of the coastal strip. Another development opportunity involves relocating the adjacent Cooke Point Recreation Club to Colin Matheson Oval. In accordance with the overall land use policies on public facilities [Public Facilities Policies 2.7 (b) and (c)], this opportunity should be pursued to add to the development potential of the Detention Centre site. This strategy also creates an opportunity for the development of a convenience centre

COOKE POINT

Detention Centre Cooke Point Recreation Club

Communications tower Athol Street townhouses, R60

Spinifex Hill Treatment plant

Racecourse

PRETTY POOL

Site of arttificial lake proposal Phase 2 Land release R20-R80

0500 metres Figure 31 Cooke Point and Pretty Pool development opportunities

60 and services for cyclists on the waterfront bike path. Such a move, however, should ensure no reduction in the recreation facilities currently available at both locations. A special feature of Cooke Point is the Rock of Ages area, at the relatively inaccessible point that gives the neighbourhood its name. The Land Use Master Plan supports development of a pedestrian boardwalk out to the point and extension of the waterfront bike path to provide better access to the coast and allow more people to enjoy the spectacular views available from this rocky promontory. Access improvements, however, must be balanced with stringent (and enforced) control of 4-wheel drive (4WD) and all-terrain vehicle (ATV) use which is severely degrading the natural beauty of this remote location and damaging turtle nesting areas. The most effective control would be identification of a dedicated area for motorbike, 4WD and ATV use on the coast, accessible to young people who have difficulty transporting their vehicles to the equivalent site in South Hedland. The only other potential development site available in the short-term is the strip of high ground on the south side of Athol Street. The elevated street and dramatic drop of the land to the south create an opportunity for multi-level townhouse development with vehicular access from a new street at a lower level in the flood plain (Figure 32). A density of R60, with appropriate design controls on frontage and height, would maintain a maximum height of 2-storeys on Athol Street while allowing for the development of a significant number of units, in a new housing type for Port Hedland. These dwellings could also be a showcase of sustainable design adjacent to a tidal flood plain. Other development constraints of this site include the hill known as Merv’s Lookout, a listed site on the Local Heritage Inventory, and a number of sewer mains traversing the Th e Athol Street gums, lining the southern area between Thompson and Whynd- edge of the Cooke Point neighbourhood ham Streets which must be retained and protected as part of any subdivision, or relocated by the developer. As noted under 3.1 Infra- structure above, the recommended relocation of the Spinifex Hill Waste- water Treatment plant and the adjacent Telstra tower will create a major residential development site. An appropriate density for this area should Athol be determined in relation to the future Street housing market when these sites be- New come available. access road Figure 32 Athol Street housing concept

61 3.8 Pretty Pool

This is the most sought after residential address in Port Hedland. LandCorp has recently developed and released 95 lots in the first of a two-phase development plan, with the second stage expected to yield up to an additional 200 residential lots including a small convenience retail area. Due to major environmental constraints surrounding this land, no further development in Pretty Pool is expected. A visionary scheme has been floated for residential development of the flood plain area immediately west of Pretty Pool, around an artificial lake or system of canals to control water levels in the area. The Land Use Master Plan supports further investigation of this development concept as an opportunity to create a unique residential environment with a significant number of new housing units. The Land Use Master Plan will be implemented through the numerous development decisions made over the coming years. For the plan to be formalised as the guiding framework for land use decisions in Port Hedland, its recommendations will be translated into a new Local Planning Scheme (LPS No. 6) developed and adopted by Council.

Pretty Pool park

62 4. Implementation

4.1 Next steps

Prior to the inclusion of the Land Use Master Plan recommendations into a new Local Planning Scheme, the Plan will be adopted as a Local Planning Strategy, subject to the approval of the Western Australian Planning Commission (WAPC).The Draft plan was presented to the WAPC in mid-July 2007 when it was approved in principle, to be advertised for public comment. Required changes have been incorporated in this revised document, which is to be presented to Council for adoption and endorsement by the WAPC. On completion of this process, the Town of Port Hedland will commence the preparation of a new Local Planning Scheme. In the meantime, a series of more detailed planning studies can proceed, including: • Preparation of a detailed Structure Plan for the South Hedland Town Centre. • Detailed planning for the Special Control District recommended over the Spoil Bank and Old Hospital site. • Preparation of a strategic plan to attract further commercial and tourism development in the West End. • Environmental and heritage investigation to identify appropriate land at the southern end of the Boodarie Industrial Estate for general industry and noxious uses, and when an acceptable site is identified, the preparation of a structure plan. This process needs to proceed in collaboration with the Department of Industry and Resources (DOIR) which controls the Industrial Estate, and BHP Billiton who own the adjacent Boodarie Station. • Preparation of a structure plan for release of general industrial land in the area east of Wedgefield, around the Shell Roadhouse. • Review of “general industry” definitions and the development of performance criteria under which existing general industries in Wedgefield could be reclassified as “light industry”. This process needs to proceed in collaboration with existing property owners, DOIR, the Department of Environment and Conser- vation and the Department for Planning and Infrastructure (DPI).

Other actions recommended during the plan adoption process include: • Up-dating of flood plain and storm surge mapping throughout the town, including consideration of the impact of severe storm sequences, shoreline move- ment, global sea level rise and the fluctuation of natural coastal processes. This mapping process must be consistent with the requirements of State Planning Policy 2.6, Schedule 1. • Mapping and prioritisation of natural areas in the Town of Port Hedland, including turtle nesting areas, with possible funding from the Rangelands Coordinating Group in consultation with DEC. This process could also include identification of a suitable motor sports beach for motorbike, 4WD and ATV use. • Clearance of Native Title on proposed residential expansion areas, particularly in South Hedland. • Continuing efforts to expedite deep sewer connection of the remaining unserviced properties in the West End and Cemetery Beach areas. • Working with Main Roads WA to study options for improvements to Great Northern Highway and access to the western side of the Port.

63 • Working with the Port Hedland Port Authority in the development of long-term expansion plans for the Port. • Adopting lighting standards for all new coastal construction and for existing artificial lighting in Cemetery Beach to protect nesting turtles and hatchlings. • Developing detailed building and landscape design guidelines to minimise the appearance and effects of dust in the West End.

Although the Land Use Master Plan looks forward 20 - 25 years, it recognises that conditions constantly change and that it is difficult to predict future needs with any certainty. The plan therefore needs to be reviewed regularly to ensure its provisions remain relevant to the current conditions. It is therefore recommended that this document be reviewed at a minimum of five-year intervals, or more frequently if circum- stances warrant.

64 Notes

65 66